THE  LIBRARY 

OF 
THE  UNIVERSITY 

OF  CALIFORNIA 
LOS  ANGELES 


Cilirarji  of 
Jaufcnn  Ball 


The  Personnel  System  of 
the    United    States    Army 

Vol.  I 


HISTORY  OF  THE   PERSONNEL 
SYSTEM 

developed  by  the 

Committee  on  Classification  of  Personnel 
in  the  Army 


(subsequently  The  Classification  Division, 
Adjutant  General's  Department) 


C.  C.  P.  399 


WASHINGTON,  D.  C. 

1919 


lust 
JUL 


t/S'tfu, 

v-l 

FOREWORD 

T""*HE  great  world  war  differs  from  all  other  wars  not 
1  merely  in  the  number  of  individuals  involved  but  even 
more  in  the  number  of  technicians  demanded.  Because  of 
the  haste  in  creating  the  Army  it  was  impossible  to  develop 
the  experts  and  accordingly  those  already  possessing  such 
technical  skill  were,  when  properly  assigned,  of  the  greatest 
value  to  the  new  Army. 

The  importance  of  personnel  work  was  early  recognized 
and  the  development  of  an  adequate  personnel  system  for 
the  United  States  Army  entrusted  to  a  group  of  specialists 
who  were  called  by  the  Secretary  of  War,  "The  Committee 
on  Classification  of  Personnel  in  the  Army"  but  who  worked 
in  the  early  days  directly  under  my  jurisdiction.  The  sys- 
tem worked  out  by  this  group  is  probably  the  most  effective 
now  in  existence.  Its  purpose  is  (1)  to  secure  a  contented 
and  efficient  army  by  placing  each  enlisted  man  where  he  has 
the  opportunity  to  make  the  most  of  his  talent  and  skill; 

(2)  to  commission,  assign  and  promote  officers  on  merit  and 

(3)  to    simplify    the    procedure    of    discovering    talent    and 
assigning  it   where   most   needed. 

In  carrying  out  these  purposes  various  tools  were  con- 
structed. Among  such  the  following  are  noteworthy:  En- 
listed Men's  Qualification  Card;  Commissioned  Officers'  Quali- 
fication Card  ;  Trade  Specifications  ;  Oral  Trade  Tests  ;  Pic- 
ture Trade  Tests  :  Performance  Trade  Tests  ;  Personnel  Speci- 
fications (Enlisted  Personnel);  and  Personnel  Specifications 
(Commissioned  Personnel). 

The  army  is  appreciative  of  this  service  and  is  pleased  to 
record  in  the  following  chapters  a  history  of  the  introduction 
of  personnel  work  in  the  United  States  Army. 

H.  P.  MCCAIN, 
Major  General,  U.  S.  A., 
Formerly,  The  Adjutant  General. 


840750 


TABLE    OF    CONTENTS 

PAGE 

SECTION  I.     GENERAL  INTRODUCTION. 

Chapter  1.  Some  Principles  of  Personnel  Adminis- 
tration    3 

Chapter  2.     The  Army  Personnel  Task  in  1917 27 

SECTION  II.     DEVELOPMENT  OF  THE   COMMITTEE. 

Chapter  3.  Forerunners  of  the  Army  Personnel 

System 39 

Chapter  4.  Early  Efforts  to  Introduce  Scientific 

Methods  of  Rating  Officers 44 

Chapter  5.  The  Establishmment  of  the  Committee 
on  Classification  of  Personnel  in  the 
Army 53 

Chapter  6.     Introduction    of    Personnel    Work    Into 

the   Camps 63 

Chapter  7.     The  Period  of  Development 78 

Chapter  8.     Committee  on  Classification  of  Personnel 
Transferred   to    Jurisdiction    of   the 
•    General  Staff 95 

Chapter  9.     Status  of  Personnel  Organization  at  Con- 
clusion of  Armistice 104 

SECTION  III.     MAN  ANALYSIS. 

Chapter   10.     Sources  of  Information  as  to  a  Man's 

Qualifications    115 

Chapter  11.     The  Soldiers'  Qualification  Card 148 

Chapter  12.  The  Actual  Operation  of  the  Classifi- 
cation System 153 

v 


vi  HISTORY  OF  PERSONNEL 

PAGE 

SECTION  IV.     JOB  ANALYSIS. 

Chapter   13.     Classification      of      Occupations      and 

Standard   Terminology 165 

Chapter   14.     Personnel  Specifications 178 

Chapter   15.     Determination    of    Army's    Needs    for 

Occupational  Specialists 202 

Chapter   16.     Job    Analysis    Applied    to    Duties    of 

Officers    217 

Chapter   17.     Commissioned  Personnel  Specifications     223 

SECTION  V.      THE  PERSONNEL  OFFICE. 

Chapter   18.     Early   Beginnings   of   Personnel  Work 

in   the    Camps 235 

Chapter   19.     Rise  of  Paper  Work  in  the  Personnel 

Office 244 

Chapter  20.     Receiving  the  Draft 253 

Chapter  21.     Personnel    Work    in    the    Staff    Corps 

Camps 268 

Chapter  22.      Plans     for     Separation     of     Personnel 

Work   and  Adjutant's  Work 274 

SECTION   VI.      PLACEMENT. 

Chapter  23.     Filling    Requisitions 283 

Chapter  24.     Balancing  a  Unit 292 

Chapter  25.     Methods  Employed  to  Interest  Officers 

in  the  Proper  Placement  of  Men.  .  308 
Chapter  26.     Selection  of  Men  for  Officers'  Training 

Schools    318 

Chapter  27.     Use  of  Limited  Service  Men 330 

SECTION   VII.      TRADE  TESTS. 

Chapter  28.      Forerunners  of  Trade  Tests 347 

Chapter  29.     Standardized  Trade  Tests 357 

Chapter  30.     Trade  Tests  in  Operation 371 


TABLE  OF  CONTENTS  vii 

PAGE 

SECTION  VIII.     THE   CENTRAL  DISTRIBUTING  OFFICE. 

Chapter  31.  The.  Development  of  the  Central  Dis- 
tributing Office 389 

Chapter  32.  The  Distribution  of  Occupational 

Specialists 398 

Chapter  33.  Draft  Statistics  and  Their  Relation  to 

the  Army  Program 409 

Chapter  34.  Special  Tasks  of  the  Central  Dis- 
tributing Office 420 

SECTION   IX.     SUPERVISION  OF  PERSONNEL  WORK. 

Chapter  35.     Supervision  of  Personnel  Work  in  the 

Camps 433 

Chapter  36.     "Personnel"    444 

Chapter  37.     Work  at  the  Ports 454 

SECTION  X.     SPECIAL  PROBLEMS. 

Chapter  38.     Training  Schools  for  Personnel  Officers     469 
Chapter  39.     History  of  the  War  Service  Exchange     491 

Chapter  40.      Development  Battalions 512 

Chapter  41.  The  Committee  on  Education  and 
Special  Training  and  the  Students' 
Army  Training  Corps 528 

SECTION  XI.     PERSONNEL  WORK  WITH  COMMISSIONED 
OFFICERS. 

Chapter  42.     The  Officers'  Qualification  Card 543 

Chapter  43.     The     Development    and     Use    of    the 

Rating   Scale 559 

SECTION  XII.     COOPERATION    WITH    OTHER    DEPART- 
MENTS. 

Chapter  44.     The  Adjutant  General's  Office 583 


viii  HISTORY  OF  PERSONNEL 

PAGE 

Chapter  45.  Cooperation  With  the  Provost  Marshal 

General's  Office 594 

Chapter  46.  Cooperation  With  the  Medical  Depart- 
ment    599 

Chapter  47.  Cooperation  With  the  Aviation  Sec- 
tion, Signal  Corps  and  Department 
of  Military  Aeronautics 604 

Chapter  48.  Cooperation  With  the  Quartermaster 

Corps 634 

Chapter  49.  Personnel  Work  in  the  Navy  and 

Marine  Corps 650 

SECTION  XIII.     DEMOBILIZATION. 

Chapter  50.     Demobilization 665 

APPENDIX  I.  PERSONNEL  OF  THE  COMMITTEE  ON 
CLASSIFICATION  OF  PERSONNEL  IN 
THE  ARMY  AND  ASSOCIATES 671 

APPENDIX  II.  ADDRESS  BY  NEWTON  D.  BAKER,  SECRE- 
TARY OF  WAR,  AT  EIGHTH  SCHOOL 
FOR  PERSONNEL  ADJUTANTS,  AUGUST, 
1918 678 

APPENDIX  III.  ADDRESS  BY  MAJOR-GENERAL  R. 
HUTCHISON,  C.B.,  D.S.O.,  DIRECTOR 
OF  ORGANIZATION,  BRITISH  ARMY.  .  684 


SECTION  I. 
GENERAL  INTRODUCTION 

This  introductory  section  sets  forth  in  Chapter  1 
a  general  statement  of  what  constitutes  personnel 
work  as  the  originators  of  this  work  in  the  Army 
finally  came  to  see  it.  In  Chapter  2  is  set  forth  in 
contrast  the  actual  situation  that  confronted  the 
Army  as  regards  personnel.  The  chapters  that  fol- 
low trace  the  development  of  the  work  as  it  steadily 
solved  the  problems  confronting  the  Army  and  fin- 
ally ripened  into  an  organized  system. 


CHAPTER   I 

SOME  PRINCIPLES  OF  PERSONNEL 
ADMINISTRATION 

It  is  not  the  purpose  of  this  chapter  to  summarize  the  rules 
of  personnel  procedure  or  to  describe  the  practices  which  were 
evolved  to  meet  the  emergencies  of  speedy  mobilization  and 
effective  organization.  This  is  done  in  detail  in  later  chapters 
and  in  the  Personnel  Manual  (Volume  II  of  the  Personnel 
System  of  the  U.  S.  Army).  Instead  it  is  the  present  intention 
to  dwell  on  certain  general  principles  of  personnel  adminstra- 
tion,  principles  which  find  broad  application  in  industry  and 
commerce  no  less  than  in  the  Army. 

The  rules  and  practices  of  personnel  work  are  numerous, 
complex,  and  varied  as  the  conditions  under  which  the  work 
must  be  accomplished.  They  are  not  to  be  mastered  in  a  day. 
Yet  the  general  principles  which  underlie  them  and  which 
guide  in  the  successful  development  and  utilization  of  these 
more  complicated  procedures  are  relatively  simple  and  few  in 
number.  We  shall  see  that  six  of  these  "laws"  or  cardinal  prin- 
ciples, together  with  a  few  corollaries  or  minor  principles 
which  they  imply,  are  adequate  to  guide  our  thought  and 
practice  amidst  a  wide  diversity  of  practical  problems  that 
emerge  within  the  range  of  personnel  administration. 

THE  PRINCIPLE  OF  FUNCTIONALIZATION 

The  control  and  administration  of  personnel  must  be  made 
the  first  duty  of  an  official  who  gives  it  his  undivided  thought 
and  his  best  energies.  In  the  phraseology  of  industrial  orga- 
nization, it  must  be  functionalized.  Responsibility  in  the 
sr*rch  for  talent,  in  personnel  classification,  in  assigning  men 
to  the  duties  where  their  special  abilities  will  count  for  most, 

3 


cannot  safely  be  left  as  an  incidental  task  to  officers  who  are 
also  charged  with  a  multitude  of  other  pressing  duties. 

In  small  organizations  where  changes  in  personnel  are 
infrequent  or  unimportant,  functionalization  is  not  necessary. 
The  same  man  who  looks  after  the  records,  the  purchases, 
the  arrangements  for  training  and  for  operations,  may  also  be 
able  to  select,  assign  and  promote  his  personnel.  But  expan- 
sion in  size  of  the  organization  soon  brings  the  necessity  for 
specialization  in  responsibility.  The  head  of  the  business  or 
the  officer  in  command  of  troops  delegates  the  function  of  keep- 
ing records  to  some  one  else.  In  the  military  machine  this 
function  rests  with  the  Adjutant.  The  function  of  supply, 
of  the  supervision  of  purchase,  storage  and  transportation,  is 
delegated  to  the  Quartermaster.  The  Medical  Officer  looks 
after  health  and  sanitation.  The  Intelligence  Officer  is  charged 
with  the  accumulation  and  systematization  of  knowledge  about 
the  enemy's  forces  and  movements,  and  about  the  enemy  at 
home.  The  Chief  of  Staff  oversees  the  training  and  discipline 
of  the  men  and  makes  plans  for  military  operations.  Legal 
functions  connected  with  courts  martial  and  the  like  are 
assigned  to  the  Judge  Advocate.  Ultimate  responsibility  in 
all  these  varied  branches  of  organization  reposes  with  the 
commanding  officer;  but  he  secures  the  best  results  by  dividing 
up  the  duties  among  his  subordinates,  and  placing  on  each  one 
a  definite  responsibility  for  his  particular  phase  of  the  complex 
task. 

It  has  not  always  been  recognzed  in  the  Army  or  in  busi- 
ness, that  this  principle  of  functionalization  should  be  extended 
to  cover  also  the  control  of  personnel.  In  the  early  summer 
of  1917,  when  the  preparations  for  mobilization  of  the  Na- 
tional Army  were  being  crystallized  in  the  War  Department, 
no  provision  had  been  made  for  any  such  specialized  responsi- 
bility for  the  wise  assignment  of  the  recruits  according  to 
their  value  to  the  different  branches  of  the  service.  To  be 
sure,  the  Quartermaster  Corps,  the  Signal  Corps,  the  Ord- 
nance, and  several  other  staff  departments  had  their  Enlisted 


PERSONNEL  ADMINISTRATION 5 

Personnel  Officers  and  their  Commissioned  Personnel  Officers, 
with  rapidly  expanding  organizations  to  oversee  the  strenuous 
activities  of  personnel  procurement,  recruiting  campaigns, 
classification  and  assignment.  Some  of  these  corps  were  bet- 
ter prepared  than  others  to  face  the  personnel  problem.  The 
competition  which  inevitably  arose  between  them  at  this  time, 
in  the  absence  of  a  completely  centralized  Army  personnel 
administration  with  ample  authority,  continued  almost  until 
the  time  of  the  armistice. 

The  new  "Staff  Manual"  which  appeared  in  1917,  described 
with  a  good  deal  of  explicitness  the  functions  of  all  the  staff 
officers  of  a  division,  but  said  not  one  word  about  classification 
and  assignment  of  personnel.  A  Plattsburg  graduate,  poring 
religiously  over  these  pages,  was  left  quite  at  sea  as  to  whether 
this  function  was  everybody's  business  or  nobody's  business. 
As  a  matter  of  fact  it  was  both,  until  the  order  was  issued  early 
in  September  just  before  the  first  draft  call,  creating  in  each 
cantonment  a  Division  Personnel  Officer,  and  placing  on  him 
and  his  assistants  the  responsibility  for  classifying  the  recruits 
and  seeing  that  each  of  them  found  his  niche  of  greatest  use- 
fulness. 

Before  the  National  Army  was  many  weeks  old  it  was  found 
necessary  to  carry  this  principle  of  functionalization  much 
farther  than  had  at  first  been  attempted.  For  instance,  the 
Division  Personnel  Officers  were  originally  instructed  to  have 
the  soldiers'  qualification  cards  prepared  by  the  company  com- 
manders. The  results  were  sometimes  disconcerting.  The 
information  on  the  cards  was  occasionally  inadequate  or  mis- 
leading, due  to  lack  of  skill  in  eliciting  full  and  exact  informa- 
tion from  the  soldier  and  all  too  frequent  instances  came  to 
light  where  the  company  commander  had  deliberately  hidden 
the  good  men  by  reporting  them  as  laborers  or  farm  hands 
instead  of  as  the  engineers,  accountants  and  telegraphers 
which  they  were,  thus  reducing  the  likelihood  of  losing  them 
by  transfer  to  other  companies.  However  strong  the  plea 
for  justification  of  such  camouflage  might  have  been  in  a  well 


HISTORY  OF  PERSONNEL 


organized  unit  about  to  move  toward  the  zone  of  combat,  little 
extenuation  for  this  blindness  to  the  paramount  needs  of  the 
Army  as  a  whole  could  be  advanced  during  those  early  weeks 
of  preliminary  training.  For  these  reasons  and  also  for  rea- 
sons of  economy  in  administration,  the  procedure  of  classifica- 
tion was  soon  modified.  The  plan  of  entrusting  the  prepara- 
tion of  the  qualification  records  to- a  board  of  specially  trained 
interviewers,  first  tried  when  the  National  Guard  Divisions 
were  classified  in  November,  soon  became  universal.  The  over- 
burdened company  commanders  were  relieved  of  an  irksome 
duty,  and  the  interviewing  was  done  on  the  whole  much  more 
thoroughly  and  reliably. 

Within  the  personnel  office  functionalization  spread  also. 
Some  of  the  men  became  skilled  interviewers ;  others  special- 
ized on  classification  and  became  expert  in  determining  and 
designating  the  recruit's  best  army  usefulness.  Still  others 
had  the  more  mechanical  work  of  affixing  tabs  or  maintaining 
the  files,  or  typing  duplicates  of  the  requisitions  and  orders. 
Officers  of  the  soundest  judgment  were  trained  in  selecting 
the  recruits  to  fill  requisitions  for  men  of  special  ability. 
Specialization  of  duties  to  correspond  with  the  different  func- 
tions within  the  Personnel  Office  became  the  rule. 

Not  only  in  the  busy  cantonments  where  recruits  were  pour- 
ing in  by  the  thousands,  but  in  the  central  office  in  Washington 
also,  the  principle  of  functionalization  spread.  Most  impor- 
tant was  the  differentiation  within  the  Personnel  Committee 
between  the  planning  group  and  the  operating  group.  While 
one  section  was  working  days,  nights,  and  Sundays  perfecting 
the  hst  of  army  occupations,  tabulating  the  anticipated  needs 
for  men  of  special  skill,  or  devising  improved  forms  of  record 
and  report,  another  portion  of  the  force  was  equally  engrossed 
in  the  immediate  direction  and  operation  of  the  personnel 
system.  One  member  was  charged  with  the  responsibility  of 
directing  the  field  supervisors.  Another  handled  the  requisi- 
tions for  specialists  as  they  came  from  the  staff  corps,  and 
determined  their  priority.  A  third  prepared  a  table  of  allot- 


PERSONNEL  ADMINISTRATION 7 

ments  of  men  from  the  current  draft,  matching  demand  and 
supply.  A  fourth  supervised  the  periodic  rating  of  officers, 
etc.  The  vitally  important  subdivision  of  functions,  however, 
was  the  one  first  mentioned,  which  set  aside,  distinct  from  the 
administrative  or  operating  group,  a  planning  group  whose 
duty  it  was  to  anticipate  the  future,  to  study  conditions,  to 
initiate  changes  and  improvements  of  method,  and  to  develop 
the  best  possible  procedures  for  the  use  of  the  operating 
group  and  of  the  personnel  forces  in  the  camps.  Here  was 
personnel  research  in  the  immediate  service  of  personnel 
administration.  Each  was  more  effective  through  being  dis- 
tinct and  separate  from  the  other,  while  maintaining  the  closest 
proximity  and  interrelationship. 

Large  commercial  and  industrial  organizations  have  quite 
generally  recognized  the  principle  of  functionalization  of  per- 
sonnel administration  by  establishing  departments  of  employ- 
ment management.  But  not  many  have  as  yet  carried  this 
principle  to  its  logical  conclusion  by  making  these  departments 
fully  responsible,  not  only  for  the  initial  hiring  and  assigning 
of  employees,  but  also  for  the  supervision  of  their  transfers 
and  promotions,  for  the  selection  of  employees  to  be  trained 
for  posts  of  responsibility,  and  for  policies  affecting  all  the 
personnel  from  the  scrub  women  and  errand  boys  up  to  the 
executives.  Yet  the  success  of  these  great  enterprises  is 
bound  up  in  their  personnel.  Concerns  which  are  fully  alive 
to  this  fact  have  recognized  it  by  creating  a  division  of  person- 
nel co-ordinate  with  the  divisions  of  finance,  production,  engi- 
neering, or  sales,  and  by  placing  in  charge  of  personnel  a 
vice-president  or  an  assistant  to  the  president,  equal  in  calibre 
and  in  authority  to  the  sales  manager  or  the  vice-president 
in  charge  of  finance. 

The  main  functional  divisions  in  army  administration  are 
clearly  seen  in  the  form  of  organization  that  was  finally 
assumed  in  1918  by  the  General  Staff,  with  its  Executive 
Division,  including  the  sections  of  Intelligence,  Statistics  and 
Morale,  its  Purchase  and  Supply  Division,  its  Storage  and 


8  HISTORY  OF  PERSONNEL 

Traffic  Division,  its  War  Plans  Division  and  its  Army  Opera- 
tions Division.  Within  the  Operations  Division  there  was 
finally  created  a  Personnel  Branch,  with  Brigadier  General 
P.  P.  Bishop  in  charge,  and  this  Personnel  Branch  was  given 
authority  to  control  the  procurement,  appointment,  assign- 
ment, promotion,  demotion  and  discharge  of  officers  for  the  en- 
tire Army.  Thus  functions  which  had  been  scattered  among 
the  staff  corps,  well  administered  in  some  and  neglected  in 
others,  were  gathered  together  and  the  responsibility  for  their 
administration  placed  in  the  hands  of  specialists  whose  sole 
duty  it  was  to  utilize  all  the  available  officer  personnel  to  the 
greatest  advantage  of  the  Army  as  a  whole,  and  not  of  any  one 
corps  or  arm  of  the  service.  Thus  was  effected  for  the  commis- 
sioned personnel  of  the  Army,  a  centralized  control  and  a 
functionalized  administration  comparable  with  that  which  had 
already  proved  its  worth  in  the  classification  and  placement  of 
the  soldiers.  No  better  illustration  is  needed  of  the  application 
of  the  principle  of  functionalization,  the  principle  that  person- 
nel control  is  best  administered  when  it  is  made  the  sole  busi- 
ness of  specialists  instead  of  being  left  to  chance  or  to  the  in- 
cidental attention  of  officials  whose  primary  interest  is  focussed 
on  other  responsibilities.  . 

THE  PRINCIPLE  OF  HUMAN  DIFFERENCES 

The  personnel  executive  needs  full,  explicit  and  accurate 
information  as  to  the  men's  qualifications.  It  is  important 
to  recognize  the  great  variety  of  human  traits  that  go  to  make 
up  these  qualifications,  and  to  know  how  wide  is  the  range  of 
excellence  in  each  trait  in  any  considerable  aggregate  cf 
human  beings. 

However  profoundly  one  may  be  committed  to  the  social 
theory  of  Rousseau  and  Jefferson  that  all  men  are  created 
equal,  every  employer  and  every  officer  in  command  of  troops 
knows  that  there  are  enormous  inequalities  of  skill  and  talent. 

The  personnel  officer  knows  that  his  office  exists  precisely 
because  these  inequalities  are  extremely  important  to  the 


PERSONNEL  ADMINISTRATION        .       9 

Army.  It  matters  not  to  him  whether  the  differences  between 
people  are  chargeable  to  differences  in  their  native  inheritance, 
which  might  account  for  certain  variations  in  physical  endur- 
ance or  brain  power  or  leadership;  or  to  differences  in  oppor- 
tunity, which  might  explain  superiorities  in  speaking  French 
or  in  driving  a  six-mule  team.  The  practical  consideration  is 
that  these  varieties  of  ability  do  exist  and  must  be  reckoned 
with. 

Ninety-eight  per  cent  of  the  recruits  sent  to  Camp  Taylor 
from  a  certain  district  in  Gary,  Indiana,  could  not  understand 
the  English  language.  Six  per  cent  of  all  recruits  claiming 
trade  skill  actually  have  the  proficiency  of  experts  in  their 
trade.  Among  three  and  a  half  million  American  soldiers 
there  are  plenty  of  barbers,  tailors,  and  lawyers  for  all  mili- 
tary needs,  but  there  are  not  anywhere  near  enough  experi- 
enced men  to  meet  the  demands  of  the  Army  for  soldiers  who 
can  drive  a  truck,  send  a  wireless  message,  or  supervise  the 
training  of  a  dispatch  dog.  About  half  of  one  per  cent  of  all 
the  recruits  are  so  stupid,  so  near  the  lower  borderline  of 
intelligence,  that  they  cannot  learn  soldiering  at  all  and  have 
to  be  returned  to  their  homes.  Fifty-five  different  kinds  of 
chemists  and  chemical  workers,  and  forty-two  distinct  kinds  of 
machinists  required  by  the  Army  were  found  among  the  men 
in  the  receiving  camps.  Some  recruits  were  cowardly  shirkers, 
posing  as  conscientious  objectors;  others  really  were  conscien- 
tious objectors,  sane  and  sincere  but  determined;  still  others 
were  equally  sincere  perhaps,  but  so  cranky  and  ego-centric 
and  unstable  that  they  needed  to  be  treated  like  borderline 
cases  of  insanity.  At  Camp  Devens,  Massachusetts,  and 
Camp  Lewis,  Washington,  more  than  twenty  per  cent -of  the 
soldiers,  a  surprisingly  high  fraction  of  the  total,  hnd  the 
native  ability  and  high  intelligence  required  in  army  officers. 
Thousands  of  the  new  soldiers  were  physically  unfit  to  take 
the  training  in  combat  units  until  they  had  first  spent  some 
weeks  in  the  Development  Battalions.  It  is  unnecessary  to 
continue  further  with  illustrations  of  individual  differences 


10 HISTORY  OF  PERSOXXEL 

or  variations  of  physique,  temperament,  mental  alertness, 
knowledge,  previous  training,  integrity,  interest,  skill,  stamina 
and  similar  traits,  every  one  of  which  contributes  toward  the 
determination  of  a  soldier's  place  of  greatest  usefulness.  The 
conclusion  follows  inevitably  that  the  personnel  officer  must 
have  adequate,  dependable  information  of  the  qualifications 
of  the  men. 

Perhaps  this  accounts  in  part  for  the  otherwise  surprising 
fact  that  the  army  personnel  organization,  the  Committee  on 
Classification  of  Personnel,  was  headed  by  a  psychologist. 
Colonel  Walter  Dill  Scott,  and  that  three-fourths  of  the  origi- 
nal members  of  that  Committee  were  university  psychologists, 
men  trained  for  years  in  the  observation  and  scientific  study 
of  human  nature  in  its  varied  aspects.  These  scientists,  like 
most  Americans,  knew  next  to  nothing  about  war.  But  they 
did  know  men.  They  had  concentrated  their  attention  for 
years  on  the  measurement  of  human  traits  and  the  determina- 
tion of  capacities.  They  realized  more  acutely  than  others, 
the  magnitude  and  range  of  the  differences  between  people; 
and  they  had  certain  elements  of  technique  in  the  determina- 
tion of  abilities  which  they  knew  could  be  adapted  to  military 
requirements.  Eager  to  do  whatever  they  could  do  best  toward 
helping  in  the  prosecution  of  the  war,  it  is  natural  that  they 
found  their  own  places  of  usefulness  on  the  research  and  plan- 
ning staff  of  the  functionalized  personnel  Organization.  Here 
they  initiated  many  undertakings  directed  toward  an  improve- 
ment in  the  accuracy  and  value  of  the  available  information 
regarding  the  qualifications  of  both  officers  and  men.  In  co- 
operation with  experienced  army  officers  and  leading  employ- 
ment executives,  they  prepared  the  first  qualification  card  and 
continued  to  revise  and  improve  it  as  the  results  of  its  use 
showed  how  it  could  be  made  a  better  means  of  recording 
significant  facts.  They  adapted  the  rating  scale  to  military 
requirements,  as  an  instrument  for  focussing  attention  on  the 
really  essential  traits  in  an  officer  and  for  enabling  these 
traits  to  be  judged  and  recorded  with  greater  accuracy  through 


PERSONNEL  ADMINISTRATION  11 

systematic  comparison  between  the  officer  being  rated  and 
other  officers  who  served  as  concrete  standards  of  measure- 
ment. They  cooperated  with  the  Surgeon  General's  Office  in 
its  highly  important  enterprise  of  developing  workable 
methods  of  measuring  a  soldier's  general  intelligence ;  and 
with  the  psychologists  of  the  Aviation  Service  in  finding  the 
best  tests  of  a  man's  capacity  to  become  a  flier.  They  inau- 
gurated brief  personnel  schools  in  the  course  of  which  officers 
received  training  in  the  technique  of  interviewing,  for  it  is 
no  easy  matter  to  get  the  full  truth  about  a  recruit's  experi- 
ence, schooling,  facility  in  French,  or  demonstrated  leader- 
ship ability.  They  prepared  a  procedure  for  getting  explicit 
reports  from  the  former  employers  of  tool-makers,  ship-fitters, 
and  other  relatively  rare  specialists,  regarding  whose  profi- 
ciency it  was  peculiarly  important  to  have  dependable  informa- 
tion. And  they  initiated  the  preparation  and  standardization 
of  the  army  trade  tests,  which  came  to  be  a  most  useful  aid 
to  the  personnel  office  in  ascertaining  what  degree  of  skill  and 
technical  knowledge  was  actually  possessed  by  a  recruit  claim- 
ing trade  ability.  In  all  these  directions  it  was  the  constant 
endeavor  to  refine  the  available  information  about  officers  and 
men,  to  make  it  a  more  reliable  statement  of  qualifications,  and 
so  to  diminish  in  a  measure  the  tremendous  waste  of  precious 
human  material  through  misplacement. 

THE  PRINCIPLE  OF  DEFINITE   PERSONNEL 
REQUIREMENTS 

No  degree  of  excellence  and  completeness  in  the  inventory 
of  a  man's  qualifications  will  lead  to  his  placement  in  the  right 
job  unless  the  requirements  of  the  job  are  known.  Conse- 
quently a  third  principle  underlying  successful  personnel 
administration  calls  for  definiteness  in  the  description*  of 
duties  and  in  the  statements  of  the  qualifications  sought  in  the 
men  who  are  to  discharge  those  duties. 

This  principle  of  definite  requirements  was  frequently  vio- 
lated, at  heavy  cost,  particularly  during  the  confusion  of  the 


12  HISTORY  OF  PERSONNEL 

earlier  months.  Sometimes  ambiguities  of  terminology  led 
new  civilian  officers  astray,  as  when  they  assumed  that  the 
army  term  "Wagoner,"  which  appeared  frequently  in  the 
Tables  of  Organization,  always  meant  a  man  capable  of  mak- 
ing wagon  repairs.  In  some  units  those  were  the  requirements, 
while  elsewhere  the  term  was  used  to  mean  merely  "wagon 
driver,"  and  even  "truck  driver."  Similarly  a  "Horseshoer" 
is  a  man  who  shoes  horses,  except  in  motorized  regiments.  In 
some  outfits  the  duties  of  the  "Master  Signal  Electrician"  re- 
quire him  to  be  an  experienced  telephone  lineman,  while  in 
others  he  need  know  no  electricity  but  must  be  a  tailor  or  an 
experienced  pigeoneer.  The  personnel  officers  soon  discovered 
that  while  these  army  names  sometimes  have  a  clear-cut  occu- 
pational significance,  more  frequently  they  mean  merely  a 
certain  grade  and  rate  of  pay,  so  that  an  explicit  statement 
of  duties  was  indispensable  before  a  wise  selection  could  be 
made  of  the  men  to  be  trained  for  those  posts. 

Another  frequent  source  of  uncertainty  was  the  ignorance 
in  which  some  commanding  officers  found  themselves  as  to  the 
precise  equipment  their  outfits  were  to  have  when  they  reached 
France.  A  certain  colonel  of  artillery  knew,  for  instance,  that 
he  was  to  organize  and  train  a  regiment  of  "light  artillery, 
motor  transported."  He  knew  that  when  he  got  his  guns 
they  would  be  of  a  new  type,  to  be  moved  rapidly  where 
emergency  demanded  by  running  them  up  on  light  speedy 
motor  trucks.  But  he  found  it  difficult  to  estimate  just  how 
many  men  qualified  to  drive  and  repair  those  trucks  he  was 
going  to  require  in  addition  to  his  gunners.  Infantry  cap- 
tains of  rifle  companies  were  in  doubt  as  to  just  how  much  of 
the  minor  repairs  on  rifles,  clothing  and  shoes  would  be 
handled  for  them  by  the  supply  company.  The  question 
whether  a  rare  acetylene  welder  was  wasted  when  assigned 
to  a  six-inch  howitzer  battery  could  not  be  answered  until  it 
was  known  whether  the  battery  equipment  was  to  include  an 
acetylene  torch.  Similarly  the  question  was  raised  whether 
the  lithographic  equipment  for  reproducing  the  maps  pre- 


PERSONNEL  ADMINISTRATION  13 

pared  daily  by  the  Intelligence  Service  was  to  be  operated 
by  that  service  at  division  headquarters  or  by  the  engineer 
regiment.  Not  until  the  answer  to  these  and  a  thousand  simi- 
lar questions  of  equipment  and  organization  had  been  found, 
could  the  assignment  of  skilled  personnel  proceed  without 
grave  danger  of  error  and  waste. 

It  was  not  sufficient  to  know  merely  the  civilian  occupa- 
tion which  would  nearest  approximate  the  requirements  of 
the  army  job  and  so  shorten  the  time  required  to  make  the 
recruit  competent  in  his  special  army  duties.  The  first  require- 
ments for  a  good  machine-gunner,  for  example,  are  not  occu- 
pational but  physical.  He  has  a  much  heavier  load  to  carry 
than  the  infantryman,  which  is  heavy  enough ;  hence  the  re- 
quest of  the  commanders  of  the  machine-gun  battalions  for 
short,  stocky,  strong-backed  soldiers.  They  had  no  need  for 
skilled  machinists,  turret-lathe  operators,  tool  makers  and 
similar  masters  of  the  machine  trades.  Every  expert  of  that 
sort  was  more  needed  in  the  Ordnance,  the  Motor  Transport 
or  the  Air  Service.  But  they  did  want  a  suitable  pro- 
portion of  men  who  had  some  native  mechanical  aptitude,  and 
they  did  insist  upon  the  importance  of  securing  substantial, 
able-bodied,  husky  specimens.  Imagine  the  despair  of  the 
commander  of  the  Machine  Gun  Replacement  Center  at 
Camp  Hancock,  when  in  the  haste  of  the  over-crowded  spring 
mobilization,  the  War  Department  sent  him  a  few  thousand 
raw  recruits  who  on  arrival  were  found  to  be  for  the  most  part, 
small,  frail  garment-makers  just  drafted  from  the  lower  East 
Side  of  New  York  City. 

It  was  the  need  for  definiteness  in  personnel  specifications 
that  led  first  to  the  preparation  and  refinement  of  the  Index 
of  Occupations,  and  the  distribution  of  this  Index  not  alone 
among  the  personnel  offices,  but  wherever  officers  were  prepar- 
ing lists  of  needed  personnel.  It  gave  them  a  common  lan- 
guage, a  working  basis  of  standard  terminology. 

A  much  more  vital  step  toward  precision  in  the  specification 
of  personnel  requirements  was  taken  when  the  volume  of 


14  HISTORY  OF  PERSONNEL 

Trade  Specifications  was  published,  containing  statements  of 
duties  and  qualifications  in  each  of  the  714  civilian  trades  and 
occupations  which  the  Army  utilized. 

Improved  requisition  forms,  supplied  especially  to  the  Staff 
Corps  officers,  helped  to  make  the  statements  of  their  require- 
ments more  precise.  These  blanks  called  for  a  listing  of 
the  number  of  soldiers  of  each  occupational  designation 
needed,  and  provided  space  for  giving  the  occupational  sym- 
bol, or  key  number  to  correspond  with  the  corresponding  defi- 
nition in  the  Trade  Specifications,  and  for  indicating  whether 
skilled  "journeymen"  or  partly  skilled  "apprentices"  and 
helpers  were  required.  Space  was  also  set  aside  for  use  in 
making  supplementary  stipulations  as  to  intellectual,  educa- 
tional or  personal  qualifications.  The  blank  proved  to  be  a 
help  to  both  the  makers  of  the  requisitions  and  the  officers 
who  were  called  upon  to  fill  them. 

Tables  of  Occupational  Needs  were  also  prepared,  showing 
how  many  men  of  a  particular  occupational  designation  are 
required  for  each  of  the  many  sorts  of  platoons,  companies, 
batteries,  squadrons,  trains,  battalions,  regiments  and  brigades, 
and  these  tables  greatly  facilitated  both  the  original  assign- 
ment of  troops  and  the  final  "balancing"  or  readjustment  of 
personnel  to  insure  that  every  outfit  had  its  proper  quota 
of  the  available  skill  and  talent. 

Many  experienced  officers  cooperated  in  compiling  these 
Tables  of  Occupational  Needs.  They  were  officers  who  had 
commanded  troops  on  the  Border  or  who  had  had  the  chance 
to  observe  British  and  French  troops  in  action,  and  who  could 
answer  the  question,  "Just  what  does  he  have  to  do"  ?  when 
interrogated  regarding  each  Serjeant  Major  or  Corporal  or 
Mechanic  or  Instrument  Man  in  their  commands.  It  is  gratify- 
ing to  know  that  when  the  first  tentative  mimeographed  edition 
of  the  Tables  of  Occupational  Needs  of  an  Infantry  Division 
was  submitted  for  examination  and  criticism  to  the  officers 
commanding  two  American  divisions  then  on  the  firing  line 
in  France,  it  stood  the  test  unexpectedly  well. 


PERSONNEL  ADMINISTRATION  15 

These  tables  were,  however,  only  a  step  toward  a  more  ade- 
quate instrument  for  accurate  placement,  the  volumes  of  "Per- 
sonnel Specifications."  The  preparation  of  these  brief  state- 
ments of  duties  and  qualifications  for  all  of  the  many  thous- 
ands of  posts  to  which  soldiers  and  officers  are  assigned  in  our 
Army,  was  a  monumental  undertaking  which  was  only  par- 
tially completed  when  on  the  memorable  day  of  the  armistice 
mobilization  abruptly  ceased.  But  the  permanent  value  of 
these  volumes  was  so  apparent  that  their  printing  was  con- 
tinued. A  portion  of  the  Officers'  Personnel  Specifications 
have  been  issued;  and  for  the  enlisted  personnel  the  specifica- 
tions are  available  for  practically  all  units  of  all  branches  of 
the  military  organization. 

If  by  some  miracle  these  descriptions  of  duties  and  qualifi- 
cations could  have  been  placed  in  the  hands  of  assignment 
officers  at  the  beginning  of  mobilization,  they  would  have 
saved  much  time  and  forestalled  many  mistakes.  Lacking 
them,  it  devolved  upon  the  personnel  officers  to  insist  as  far  as 
practicable  that  each  requisition  for  men  should  be  explicit  in 
its  statement  of  requirements ;  that  precious  "stenographers" 
were  not  specified  when  mere  "typists"  would  do;  that  appren- 
tices and  helpers  were  sprinkled  through  the  list  in  suitable 
proportion,  along  with  the  rarer  journeymen,  experts,  and 
foremen ;  that  coppersmiths  were  not  requisitioned  to  do  a 
tinsmith's  work,  and  that  when  the  General  wanted  a  secretary 
who  could  meet  strangers,  handle  personal  accounts,  work 
fourteen  hours  at  a  stretch,  and  manage  a  skittish  horse,  he 
should  say  so  in  the  first  instance  instead  of  merely  asking  for 
a  good  stenographer  and  then  placing  the  blame  on  the  person- 
nel office  when  the  recruit  sent  him  failed  to  qualify.  All  too 
frequently  the  investigation  of  instances  of  dissatisfaction 
with  drafted  men  supplied  from  the  Depot  Brigades  disclosed 
that  the  officers  had  gotten  just  what  they  had  requistioned, 
but  they  had  not  asked  for  what  they  really  required.  In  the 
Army,  as  in  business  and  industry,  the  first  move  toward 
securing  the  right  personnel  is  to  determine  precisely  what 


16 HISTORY  OF  PERSONNEL 

the  duties  are  to  be,  and  to  state  explicitly,  in  writing,  just 
what  are  the  minimum  qualifications  which  the  adequate  per- 
formance of  those  duties  demands. 

THE  PRINCIPLE  OF  ORGANIZATION 

To  effect  a  speedy  adjustment  between  the  personnel 
requirements  and  the  available  supply,  a  suitable  organization 
is  essential.  Usually  when  men  are  wanted  they  are  wanted 
at  once.  The  camp  Quartermaster  Supply  Department  finds 
itself  behind  the  game  in  issuing  shoes  to  new  recruits,  and 
appeals  to  the  Personnel  Office  for  an  additional  stockkeeper 
and  six  experienced  shoe  salesmen.  A  cable  signed  "Persh- 
ing"  requests  the  early  shipment  of  an  additional  hundred 
railway  car  erectors,  or  electric  crane  operators,  or  refrigera- 
tion experts,  or  troops  for  the  mobile  ordnance  repair  shops. 
The  commander  of  a  division  which  is  suffering  serious  cas- 
ualties in  the  Argonne  Forest  calls  on  the  great  Replacement 
Depot  at  St.  Aignon  to  forward  a  thousand  infantrymen 
and  specifies  the  proportions  that  should  be  qualified  signal- 
men, truck-drivers,  photographers,  cooks,  scissors-instrument 
operators,  bridge  carpenters  and  telegraphers.  No  matter  how 
clearly  these  requirements  are  formulated,  and  no  matter  how 
adequately  the  men  in  the  depots  have  been  examined  and 
classified,  the  results  are  disappointing  unless  there  is  a 
smooth-running  personnel  machine  to  match  up  promptly  the 
supply  with  the  demand. 

It  is  the  pride  of  many  an  officer  that  his  personnel  organi- 
zation was  able  to  meet  just  such  emergencies  as  these.  His 
qualification  cards  were  well  classified,  tabbed,  and  filed  so 
that  they  could  be  consulted  readily.  His  assistants  were 
thoroughly  familiar  with  his  system  and  knew  each  what  was 
expected  of  him.  He  had  instant  telephonic  connection  with 
the  various  company  headquarters,  with  the  headquarters  of 
the  depot  brigade,  with  the  division  adjutant,  with  the  camp 
surgeon  and  with  the  transportation  officer.  Someone  was  on 
duty  nights  and  Sundays.  Everyone  in  the  organization  knew 


PERSONNEL  ADMINISTRATION 17 

that  whatever  he  had  to  do  in  interviewing,  trade-testing, 
transcribing  intelligence  scores,  or  preparing  tedious  tabula- 
tions for  Washington,  it  was  all  merely  preliminary  to  the 
real  test  of  whether  the  organization  could,  on  demand,  deliver 
the  goods  as  wanted. 

This  is  not  the  place  to  enter  into  a  discussion  of  the  varied 
aspects  of  the  personnel  machinery  which  experience  proved 
to  be  best  suited  to  the  military  exigencies.  Its  broader  out- 
lines called  for  an  adequate  staff,  including  at  least  a  stable 
nucleus  of  thoroughly  trained  assistants,  and  for  attention  to 
the  elementary  principles  of  effective  office  organization,  such 
as  clear-cut  assignment  of  responsibilities,  provision  for  the 
simplest  workable  system  of  adequate  records,  economical 
routing  of  work,  careful  planning  ahead  to  reduce  the  strain 
at  the  time  of  the  peak  load,  etc. 

Such  a  machine  accomplished  its  purpose  partly  because  it 
was  rightly  set  up,  and  partly  because  the  intelligent  human 
gears  and  levers  in  it  realized  that  they  were  part  of  a  system 
that  had  a  direct  and  vital  though  unspectacular  share  in  the 
prosecution  of  the  war.  Sergeants,  typists,  interviewers  and 
orderlies  knew  that  the  better  their  work  was  done,  the  more 
rapidly  would  proceed  the  training  of  our  forces,  and  the 
sooner  would  they  be  ready  to  meet  the  approaching  crisis  on 
the  Western  Front. 

Thus  application  of  the  principles  of  organization  in  per- 
sonnel administration,  introduced  in  large  part  by  officers  and 
civilian  experts  who  in  the  days  before  the  war  had  been 
executives  in  large  business  or  manufacturing  concerns,  contri- 
buted toward  the  realization  of  the  army  personnel  idea, 
namely,  the  speedy  placement  of  the  varied  elements  of 
America's  man-power  each  in  his  place  of  greatest  military 
usefulness. 

Records  of  Performance.  One  essential  feature  of  any  ideal 
personnel  system  is  a  provision  for  adequate  records.  Periodic 
reports  must  be  secured  on  the  actual  performance  of  the  men 
who  have  been  placed,  so  that  the  information  on  the  qualifi- 


18 HISTORY  OF  PERSONNEL 

cation  records  will  be  constantly  brought  up  to  date.  When  a 
man  is  exhibiting  unusual  ability  in  his  work,  that  fact  should 
be  known,  and  when  he  is  not  making  good,  that  fact  too 
should  be  recorded,  so  that  plans  can  be  made  for  shifting 
him  to  an  assignment  better  suited  to  his  capacities. 

Little  was  done  by  the  personnel  office  to  secure  such  sys- 
tematic information  regarding  the  soldiers,  other  than  to  keep 
the  records  of  their  changes  of  status  and  successive  assign- 
ment posted.  But  each  officer's  card  had  also  the  record  of 
his  rating  made  quarterly  by  two  of  his  superior  officers;  so 
that  the  foundations  were  laid  for  a  sound  system  of  promo- 
tion by  merit  as  contrasted  with  promotion  by  seniority  or 
acquaintance  or  favoritism  or  alphabetical  order.  In  an 
effective  personnel  organization,  such  systematized  judgments 
on  the  man's  proven  qualifications  for  their  posts  are  not 
merely  secured  and  recorded,  but  used,  in  a  constant  endeavor 
the  better  to  adjust  the  supply  of  available  talent  to  the 
ever-changing  needs. 

THE  PRINCIPLE  OF  ECONOMY  OF  PERSONNEL 

Any  decision  regarding  the  most  judicious  disposition  to  be 
made  of  available  personnel  involves  a  multitude  of  consider- 
ations. It  is  not  sufficient  to  ask,  "What  are  the  duties  of 
this  position?"  and  "Can  this  applicant  or  this  officer  or  this 
recruit  meet  its  requirements  ?"  After  the  personnel  executive 
has  assured  himself  that  he  has  a  man  who  can  fully  qualify 
for  the  post  the  question  arises,  "Would  this  man  be  still 
more  useful  somewhere  else?"  An  officer  who  has  spent 
several  years  in  stock  breeding  and  marketing  in  the  West 
may  be  thoroughly  competent  for  an  assignment  in  the  Quar- 
termaster's Department  as  a  purchaser  of  artillery  draft 
horses.  His  expert  knowledge  there  might  save  the  Govern- 
ment thousands  of  dollars;  yet  if  this  officer  has  already 
demonstrated  his  ability  as  a  commander  of  a  company  of 
infantry,  and  if  infantry  officers  who  can  be  absolutely 
depended  upon  are  pressingly  needed  in  the  combat  zone,  there 


PERSONNEL  ADMINISTRATION 19 

is  little  doubt  but  that  his  place  is  in  the  line  instead  of  the 
service  of  supply.  One  recalls  the  old  pleasantry  about  the 
perfectly  good  chef  assigned  as  a  railway  worker,  and  a  gradu- 
ate in  transportation  engineering  doing  the  cooking.  Clearly 
the  principles  of  good  personnel  administration  were  over- 
looked even  though  each  soldier  was  performing  his  tasks 
satisfactorily. 

Determining  the  Man's  Best  Usefulness.  The  first  step 
toward  economy  of  personnel  involves  a  decision  as  to  the 
man's  greatest  value  to  the  service.  To  this  end,  it  was 
early  recognized  that  the  qualification  record  must  provide 
information,  not  only  regarding  a  recruit's  main  vocation, 
but  also  as  to  other  occupations  he  has  followed  and 
as  to  his  avocations  and  hobbies.  One  business  man  of  twenty- 
eight,  experienced  in  accounting  and  office  management,  was 
considered  as  an  assistant  to  the  Ordnance  Officer  until  the 
fact  emerged  that  he  had  indulged  in  ballooning  as  a  pastime. 
Many  of  our  regiments  have  been  hard  put  to  find  com- 
petent musicians,  particularly  bandmasters,  and  every  general, 
especially  after  he  arrived  on  the  other  side  and  heard  the 
magnificent  bands  of  our  French  comrades  in  arms,  felt  keenly 
the  military  value  of  really  inspiring  band  music.  But  of 
course  there  were  very  few  soldiers  who  had  ever  earned  their 
livelihood  as  professional  band  musicians,  and  so  it  was  neces- 
sary to  seek  out  those  who  had  become  proficient  on  the  tuba 
or  the  clarinet  "on  the  side."  and  set  them 'to  coaching  their 
less  skilful  mates.  Yet  it  would  never  do  to  make  even  a 
regimental  band  leader  out  of  a  draftee  who  was  a  capable 
meteorologist,  competent  to  serve  the  Artillery  and  the  Air 
Squadrons  in  their  hourly  weather  predictions.  As  Emerson 
wrote,  "That  man  is  idle  who  can  do  something  better." 

The  personnel  officer's  assistant  whose  duty  it  was  to  study 
the  newly  made  qualification  cards  and  indicate  on  each  his 
decision  as  to  the  soldier's  main  army  classification,  was  often 
confronted  with  a  pu/zling  problem.  Should  a  foreman  in  a 
knitting  factory  who  had  never  finished  high  school  but  who 


20  PI  I  STORY  OF  PERSONNEL 

spoke  English,  French,  Czech,  and  Norwegian,  who  under- 
stood all  about  woolens,  sox  and  sweaters,  who  drove  and 
repaired  his  own  automobile,  and  who  because  of  some  youth- 
ful experience  in  Bohemia  was  able  to  pass  an  examination 
for  optical  glass  makers  with  the  rating  of  an  apprentice,  be 
checked  for  army  purposes  as  first  of  all  an  interpreter,  a 
chauffeur,  a  woolen  expert,  or  a  glass  maker?  Or  should  he 
because  of  his  fine  physique,  good  intelligence  and  demon- 
strated leadership  ability  be  considered  for  assignment  to  an 
infantry  unit  with  the  expectation  that  he  might  eventually 
make  good  as  a  non-commissioned  officer?  Obviously  an 
answer  is  possible  only  in  the  light  of  the  relative  need  at  the 
time  for  men  of  those  different  abilities.  There  were  exigen- 
cies during  the  winter  of  1918  that  might  have  warranted 
evaluating  even  a  partly  skilled  optical  glass  maker  as  worth 
as  much  to  the  Army  as  three  woolen  experts  or  a  dozen  ama- 
teur automobilists.  And  always  the  question  was  a  pertinent 
one  whether  trade  skill  of  any  sort  outweighed  real  leader- 
ship and  fighting  quality.  It  is  clear  that  judicious  classifi- 
cation and  placement  could  be  made  only  by  one  who  had 
knowledge  of  the  various  army  requirements  and  who  appre- 
ciated the  relative  ease  or  difficulty  of  satisfying  those 
different  demands. 

The  Hierarchy  of  Requirements.  What  was  needed  in 
the  personnel  office  was  a  scale  of  military  values,  a  priority 
list,  a  pyramidal  chart  at  the  top  of  which  would  be  listed 
the  optical  instrument  repairmen,  chemists,  lead  burners,  die 
sinkers,  topographical  draftsmen  and  other  "rare  birds" 
which,  at  least  for  the  time  being,  were  sorely  needed  and 
extremely  difficult  to  find.  Below  them  would  appear  a  larger 
list  of  highly  useful  specialists  such  as  surveyors,  crane  opera- 
tors, ventilation  experts,  railway  engineers,  sailmakers  and 
farriers,  men  whose  occupational  skill  placed  them  in  a  group 
where  the  Army  demand,  while  not  so  pressing,  yet  clearly 
exceeded  the  supply.  Next  would  be  found  the  great  bulk  of 
skilled  occupations  needed  in  the  Army.  Here  would  be  those, 


PERSONNEL  ADMINISTRATION  21 

like  truck-drivers,  who  were  very  essential,  and  numerically 
in  great  demand,  but  who  could  be  trained  in  a  relatively  brief 
time.  Here  also  would  be  certain  of  the  more  highly"  skilled 
trades  and  occupations  such  as  engraving  or  accounting, 
difficult  to  acquire  but  relatively  less  in  demand.  Another 
stratum  would  include  the  barbers,  carpenters,  garment 
workers  and  the  like,  some  of  whom  are  needed  in  every 
regiment,  but  who  are  numerous  enough  and  need  only 
to  be  properly  distributed.  Finally  at  the  base  of  the 
pyramid  would  come  the  unskilled  workers  and  also  the 
teachers,  lawyers  and  others  whose  vocational  proficiency  as 
such  is  not  much  of  a  military  asset  and  whose  superior  use- 
fulness must  emerge  if  at  all  from  their  superior  general 
ability  and  personal  qualities.  Such  a  schedule  of  priorities  or 
hierarchy  of  requirements,  with  the  most  rare  and  precious 
names  at  the  top,  and  the  others  grouped  according  to  their 
relative  army  value,  would  have  proved  a  boon  to  classifiers 
whose  work  was  to  designate  each  soldier's  best  army  useful- 
ness. In  the  absence  of  such  a  complete  tabulation,  they  were 
compelled  to  use  their  best  judgment  in  each  separate  instance, 
aiming  to  give  due  consideration  to  all  the  evidence,  including 
the  facts  about  the  man's  schooling,  his  weekly  earnings,  his 
age,  his  intelligence  and  his  physique,  as  well  as  his  vocational 
experience,  and  the  relative  demand  at  the  time  for  men  in 
the  posts  for  which  he  seemed  able  to  qualify. 

Use  As  Assigned.  This  determination  of  a  man's  usefulness 
fails  of  its  purpose  unless  precautions  are  taken  to  insure  that, 
after  placement,  he  is  actually  employed  in  the  capacity  for 
which  he  has  been  selected.  A  statement  must  go  with  each 
specialist  when  he  is  transferred  to  his  new  post,  indicating 
precisely  whether  he  is  sent  in  response  to  the  request  for  a 
leather  worker  or  a  veterinarian  or  a  demolition  man.  Other- 
wise the  company  commander  in  the  course  of  his  multifarious 
responsibilities  may  mistake  the  new  arrival  for  one  of  the 
many  non-specialists  he  is  receiving,  and  may  later  duplicate 
his  original  request.  In  the  winter  of  1917-18,  literally  hun- 


22  HISTORY  OF  PERSONNEL 

dreds  of  valuable  technical  troops,  procured  after  the  most 
painstaking  search  in  response  to  cabled  requests  of  the  Ex- 
peditionary Forces  for  men  of  unusual  qualifications,  were  lost, 
wasted,  simply  because  on  their  arrival  at  the  Base  Depot  of 
the  Service  of  Supply  at  Blois,  nothing  on  their  papers  showed 
clearly  just  which  special  requisition  they  were  intended  to  fill. 
Consequently  some  of  them  were  put  to  work  as  stevadores, 
while  the  parts  of  the  locomotives  or  the  refrigeration  plants 
they  had  been  sent  over  to  assist  in  assembling  continued  to 
congest  the  over-crowded  wharves.  Of  course  as  soon  as  this 
dangerous  leak  was  brought  to  the  attention  of  The  Adjutant 
General  in  Washington,  the  necessary  steps  were  taken  to 
insure  that  a  suitable  "bill  of  lading"  went  with  the  men,  to 
identify  them  fully,  and  to  insure  their  utilization  in  the  posts 
for  which  they  had  been  specially  chosen. 

Dilution.  Extravagance  in  personnel  distribution  no  less 
than  in  automobile  driving  is  often  traceable  to  the  use  of  too 
rich  a  mixture.  The  Sanitary  Train  of  a  certain  Guard  Division 
had  been  recruited  from  a  university  and  was  made  up  almost 
exclusively  of  college  men.  Here  was  an  organization  of  nine 
hundred  soldiers  with  an  inordinate  proportion  of  excellent 
leadership  material,  much  needed  elsewhere.  And  about  half 
of  them  were  devoting  their  energies  to  the  most  menial  of 
routine  duties  which  could  have  been  done  as  well  or  better  by 
others.  Some  Engineer  Regiments  of  sappers  were  made  up 
so  largely  of  trade  specialists  and  high  grade  men  that  they 
were  hard  put  to  find  enough  strong-backed  laborers  to  do 
the  vitally  essential  pick-and-shovel  work.  Such  organiza- 
tions needed  to  be  diluted  with  non-specialists,  if  economy  of 
personnel  was  to  be  effected. 

Avoid  Unnecessary  Transfer  of  Personnel.  It  is  obvi- 
ously good  personnel  economy  when  seeking  for  any  needed 
specialist  to  look  first  -within  the  ranks  of  the  organiza- 
tion which  needs  him.  Like  charity,  the  search  for  talent 
should  begin  at  home.  Such  a  policy  not  only  saves  time, 
trouble  and  the  money  post  qf  transportation  in  effecting  a 


PERSONNEL  ADMINISTRATION  23 

transfer.  It  also  encourages  loyalty  to  the  organization  when 
men  see  that  superior  ability  is  recognized  with  promotion. 

When  the  question  first  arose  in  October,  1917,  whether  the 
classification  should  be  extended  to  the  National  Guard  Divi- 
sions also,  the  point  was  raised  that  the  officers  in  the  Guard 
Divisions  already  knew  their  men  so  well  that  a  systematic 
inventory  of  their  qualifications  would  be  superfluous ;  but 
many  rapid  changes  and  consolidations  were  in  progress,  and 
the  decision  was  made  to  undertake  the  classification  immedi- 
ately. While  this  work  was  in  progress  at  Camp  Shelby,  the 
Colonel  of  Engineers  came  to  the  personnel  office  with  a 
request  for  help  in  finding  a  man  whom  he  could  make  his 
regimental  serjeant  major,  the  most  responsible  assignment 
to  which  a  non-commissioned  officer  can  aspire.  The  person- 
nel officer  asked  just  what  kind  of  a  man  the  colonel  wanted. 
"He  ought  to  be  mature  enough  and  with  physical  presence 
enough  to  command  the  respect  of  the  men  of  the  regiment. 
He  should  have  had  military  experience  and  be  able  to  exer- 
cise authority.  I  want  a  man  who  has  done  clerical  work, 
preferably  bookkeeping  or  accounting,  because  he  will  be 
responsible  for  many  of  the  regimental  records.  And  it  would 
be  well,"  the  colonel  added,  "if  he  has  also  had  engi- 
neering training."  The  personnel  officer  searched  the  qualifi- 
cation records  of  the  entire  division  and  selected  three  soldiers 
for  the  colonel's  consideration.  The  one  who  was  finally 
chosen  had  as  a  lad  enlisted  in  the  Navy  and  risen  to  the 
rank  of  machinist's  mate,  demonstrating  his  capacity  to  com- 
mand. He  had  then  left  the  Navy  and  worked  for  about 
three  years  as  a  bookkeeper.  He  was  26  years  old,  had  the 
desired  physique  and  presence,  and  at  the  time  of  his  enlist- 
ment in  the  National  Guard  two  months  previously  he  was 
Junior  in  the  Engineering  School  of  Tulane  University.  More- 
over he  was  a  private  in  that  colonel's  own  regiment ! 

Principles  of  economy  that  apply  within  the  camp  have 
also  governed  the  administration  of  the  central  assignment 
office  in  Washington,  Millions  of  dollars  in  the  cost  of  rail- 


24 HISTORY  OF  PERSONNEL 

way  transportation  alone  were  saved  to  the  taxpayers  through 
the  pains  taken  to  select  specialists  for  transfer  from  these 
camps  and  depots  geographically  nearest  the  places  where 
the  technical  units  were  to  be  organized. 

THE  PRINCIPLE  OF  MORALE 

Any  shifts  of  personnel,  including  assignments,  transfers, 
promotions  and  demotions,  should  always  be  made  with  due 
consideration  for  their  effect  on  the  spirit  of  the  men  and  the 
organizations  concerned. 

Men  accept  new  assignments  with  better  grace  if  pains  is 
taken  to  make  it  clear  to  them  why  the  transfer  is  made.  Bri- 
tish practice,  as  observed  in  the  Transfers  Centers  and  Army 
Posting  Stations  of  England  during  the  summer  of  1918,  was 
in  this  respect  superior  to  the  typical  American  procedure. 
The  officer  took  the  time  necessary  to  assure  himself  of  the 
soldier's  qualifications  and  physical  limitations,  and  also  of 
his  personal  preferences.  When  the  current  needs  of  the  Army 
coincided  with  the  preferences  of  the  soldier  he  was  assigned 
accordingly;  and  when  they  did  not,  the  posting  officer  ex- 
plained to  the  soldier  very  frankly  why  he  was  being  sent 
elsewhere,  so  that  he  went  away  feeling  that  he  had  had  a 
square  deal  and  that  he  was  going  where  he  could  do  the 
most  for  his  country's  cause. 

Frequent  changes  are  subversive  of  good  team  work.  Noth- 
ing is  more  disheartening  to  officers  or  soldiers  than  to  see 
some  of  their  best  personnel  suddenly  removed,  just  at  the 
time  when  strenuous  enthusiastic  training  has  brought  about 
a  measure  of  group  competence.  Extensive  transplanting 
while  intensive  training  is  in  progress  usually  proves  to  be  an 
extravagance.  It  should  be  avoided  just  as  far  as  possible 
through  correct  initial  assignment. 

Local  pride  is  a  tremendous  stimulator  of  group  loyalty  in 
a  company,  a  regiment  or  a  division.  It  was  a  wise  provision 
in  the  original  National  Army  mobilization  order  which 
directed  that  drafted  men  from  each  locality  should,  as  far  as 


PERSONNEL  ADMINISTRATION  25 

practicable,  be  kept  together.  To  be  sure  this  injunction  was 
by  some  commanders  interpreted  too  literally  and  carried  to 
absurd  extremes,  as  in  the  case  of  the  division  in  which  all 
the  men  from  one  local  board  were  put  in  the  ammunition 
train,  from  another  into  the  machine  gun  battalion,  and  so  on, 
quite  without  reference  either  to  the  differing  needs  of  the 
units  or  to  the  widely  varying  average  qualifications  of  the 
recruits  from  city  wards,  mining  towns,  and  rural  localities. 
When  original  assignments  were  made  according  to  such  a 
purely  geographical  scheme,  later  shifts  and  readjustments 
were  necessarily  numerous  or  else  training  was  unnecessarily 
slow. 

During  the  early  months,  the  men  transferred  out  of  com- 
panies in  training  were  frequently  tradesmen  and  technicians. 
Naturally  these  were  also  the  very  men  of  superior  native 
ability  whom  the  company  commander  had  selected  as  promis- 
ing material  for  his  non-commissioned  officers  and  whom  he 
was  loath  to  lose.  It  was  to  diminish  this  demoralizing  effect 
of  transfers  that  the  practice  then  grew  up  in  personnel  offices 
of  placing  a  check  mark  on  the  qualification  cards  of  soldiers 
designated  by  their  commanders  as  pivotal  men,  and  this  "pre- 
ferred stock"  was  not  requisitioned  so  long  as  other  men  of  the 
required  occupational  designation  could  be  found. 

At  the  same  time  it  had  to  be  borne  in  mind  that  morale  is 
dampened  unless  it  is  clear  that  the  line  of  promotion  on  merit 
is  open.  An  officer  loses  his  grip  on  his  men  if  they  come  to 
suspect  that  he  is  holding  back  his  best  sergeant  from  a 
chance  to  go  to  Officers'  Training  School  because  he  seems 
indispensable  to  his  company.  The  officer  himself  cannot  put 
forth  his  best  efforts  if  he  has  reason  to  imagine  that  his 
own  promotion  hinges  partly  on  the  caprices  of  favoritism,  or 
if  he  knows  that  it  depends  solely  on  the  mechanical  operation 
of  the  seniority  rule.  In  the  Army  as  in  business,  morale  is 
definitely  strengthened  if  it  is  obvious  that  changes  in  status 
are  direct  and  adequate  measures  of  individual  worth. 


26 HISTORY  OF  PERSONNEL 

SUMMARY 

The  rule  of  economy  of  personnel  resources  is  perhaps  the 
most  comprehensive  of  all  the  principles  of  personnel  adminis- 
tration. It  necessarily  implies  each  of  the  other  cardinal  prin- 
ciples. An  executive  who  strives  to  give  every  man  a  chance 
at  the  work  where  lies  his  greatest  usefulness,  will  find  himself 
compelled  to  set  up  a  simple  but  adequate  machinery  of 
records  and  a  smooth  running  organization  for  adjusting  the 
supply  to  the  demand.  He  must  aim  to  use  this  organization 
so  as  to  stimulate  and  maintain  rather  than  shatter  individual 
and  group  morale.  He  must  know  with  precision  the  require- 
ments of  each  of  the  places  to  be  filled.  He  must  secure  an 
accurate  inventory  of  the  qualifications  of  the  men  to  be 
placed.  And  to  accomplish  all  this  he  must  be  a  real  personnel 
executive,  devoting  his  best  thought  and  energies  to  the  multi- 
form problems  that  constantly  emerge,  rather  than  trying  to 
supervise  the  control  of  personnel  incidentally,  amidst  the 
pressure  of  other  crowding  duties.  His  work  must  be  func- 
tionalized  as  it  had  to  be  in  the  Army,  and  as  it  is  bound  to  be 
in  any  great  industrial,  commercial  or  governmental  enterprise. 

In  the  following  pages  is  recorded  the  story  of  how  these 
cardinal  principles  operated  to  shape  the  policies  and  pro- 
cedures of  the  Army,  in  its  effort  to  absorb  the  youth  and 
talent  of  the  nation  and  to  make  of  it  most  speedily  an  offen- 
sive engine  of  overwhelming  power. 


CHAPTER  2 
THE  ARMY  PERSONNEL  TASK  IN  1917 

When  Congress  declared  on  April  6,  1917,  "that  the  state 
of  war  between  the  United  States  and  the  Imperial  German 
Government  which  has  been  thrust  upon  the  United  States 
is  hereby  formally  declared,"  the  nation  was  committed  to  a 
most  radical  reversal  of  policy  and  interest.  Overnight,  we 
changed  from  a  nation  desiring  peace  and  no  foreign  relations, 
with  an  army  that  was  scarcely  more  than  a  national  constabu- 
lary, and  with  reserve  munitions  that  totalled  almost  nothing, 
to  a  nation  determined  to  send  soldiers  and  arms  without  limit 
to  a  front  on  French  soil  3,000  miles  away. 

The  appreciation  of  what  this  determination  actually  meant 
in  numbers  grew  as  the  months  went  by,  but  the  spirit  of 
"spend  all  that  is  necessary  in  men  and  in  money"  was  present 
at  the  beginning  and  remained  constant.  To  conceive  what 
this  determination  accomplished,  one  must  see  a  Combat  Divi- 
sion on  review,  or  witness  the  hoisting  of  a  complete  loco- 
motive from  the  hatch  of  a  cargo  ship,  or  visit  the  Bethlehem 
Steel  works  at  night,  but  some  notion  of  what  was  done  in 
mobilizing  our  man-power,  and  through  it  our  supplies,  can  be 
gained  from  the  tables  on  the  following  pages. 

The  accomplishment  which  these  tables  represent  was  the 
result  of  the  labors  of  Americans  working  under  a  pressure 
and  with  an  intensity,  enthusiasm  and  interest  never  before 
experienced  in  this  generation. 

The  nation's  fund  of  energy  thus  released  had  to  be 
directed.  Men  had  to  be  brought  into  the  army  service  and 
men  and  women  had  to  enter  and  speed  up  industry,  trans- 
portation and  agriculture. 

The  first  great  step  was  taken  on  May  18,  1917,  when  with 

27 


28 


HISTORY  OF  PERSONNEL 


Comparative  strength  of  service  March,  1917,  and  November,  19 181 

Old  Army,  New  Army, 

March,     November, 

1917.  1918. 


Infantry  and  machine  gun  

85,000        974,000 

Engineer  . 

3,000        394,000 

Field  Artillery  and  ammunition  train  , 

,  9,000        389,000 

Medical  

7,000        300,000 

Quartermaster    

8,000        228,000 

Coast  Artillery  

21,000         137,000 

Ordnance    

.    .    .       1,000           64,000 

Signal    . 

.  .    .           3,000          52,000 

Cavalry    . 

22,000          29,000 

Air  Service   

....              0        202,000 

Motor  Transport  

0         103,000 

Militia  Bureau   

...                  0          27,000 

Chemical  Warfare   

0           18,000 

Tank    

0           14000 

In   training    

0        549  000 

All  other    

31,000         185  000 

Total   

190  000      3  665  000 

Comparative  figures   on  Supplies,  June 

1917  and  November,   19181 

Cargo  shipped                June,  1917, 
16,000  tons 

October,  1918,  750,- 
000  tons 

Army  fleet 


June,  1917, 

13  ships,  94,000  tons 


Nbvember,    1918, 
431   ships,  3,004,445 
tons 


Rifles,  1917  models        Accepted,  Aug.,  1917 
2,000 


Accepted,    October, 
1918,  207,247 


Browning   Machine       Accepted,   April, 
Gun,  heavy  1918,  12 


Accepted,    October, 
1918,  13,747 


Ball  Cartridges, 
Caliber  30 


Rounds  produced, 
September,  1917, 
12,000,000 


Rounds  produced 
October,  1918,  254,- 
000,000 


1  From  Annual  Report  of  the  Secretary  of  War.   1918. 


PERSONNEL  TASK  IN  1917 29 

the  support  of  the  country,  Congress  decided  what  age-groups 
would  be  called  on  for  military  service  and  made  their  decision 
binding  in  the  "Act  to  increase  temporarily  the  military  estab- 
lishment of  the  United  States." 

The  next  step  was  the  placing  of  war  contracts  which  gave 
to  manufacturers  the  power  to  bring  an  army  of  workers  into 
industry.  This  led  later  to  the  creation  of  the  Federal  Em- 
ployment Service,  intended  to  regulate  the  supply  of  labor 
much  as  the  draft  machinery  regulated  the  supply  of  men  for 
the  army. 

Then  came  federal  control  of  transportation,  coal  and  trade 
and  the  stimulation  of  agriculture  and  the  control  of  food. 

Expansion  in  artillery  equipment1 

Total  con-    On  hand    On  hand 

Artillery  (complete  units).         tracted  for.     Apr.  6,      Nov.  1, 

1917          1918 


Trench    

11,700 

5,000 

Light  . 

10,113 

779 

3,850 

,  5,385 

114 

1,070 

Heavy  .              < 

3,472 

695 

Railway                  .  .    . 

211 

19 

Total  30,881  893        10,634 

In  each  of  these  administrative  expressions  of  the  Nation's 
determination  to  win  the  war  there  was  a  common  feature — 
human  beings  of  many  kinds  of  ability  were  needed  in  stag- 
gering numbers.  For  the  army  alone  9,587,000  men  were 
registered  on  June  5,  1917,  and  later  14,122,000  more  added. 

The  numbers  are  large;  but  one  is  even  more  bewildered 
by  the  detail  involved  in  handling  each  man  as  an  individual, 
from  his  registration  at  a  Local  Board,  through  his  mustering 
into  the  Army,  placement  in  a  unit,  training,  shipment  over- 
seas, return  and  ultimate  discharge. 

1  From  Annual  Report  of  the  Secretary  of  War,  1918. 


30  HISTORY  OF  PERSONNEL 

Each  officer  and  soldier  had  to  be  treated  individually,  how- 
ever, not  merely  because  records  must  be  kept  for  each,  but 
because  each  had  some  special  ability  which  had  to  be  dis- 
covered and  used  where  it  would  contribute  most  to  the  Army. 

To  describe  the  growth  of  the  personnel  methods  by  which 
men  were  handled  as  individuals  from  the  day  they  reached 
the  camp  until  the  day  of  their  discharge  is  the  purpose  of 
the  present  volume.  In  a  second  volume  (The  Personnel 
Manual,  published  in  May,  1919),  the  detailed  directions  for 
use  by  the  various  parts  of  the  organization  are  printed  as  a 
manual  of  operation. 

THE  ENLISTED  PERSONNEL 

The  machinery  which  existed  in  April,  1917,  for  handling 
the  army  personnel  problem  was  adequate  for  our  small 
Regular  Army  as  then  organized.  It  was  never  intended  for 
war  conditions,  and  the  changes  which  it  underwent  were  indi- 
cations of  competence  to  meet  new  conditions. 

The  Man-Power  Supply.  In  the  year  before  the  war  men 
were  recruited  at  189  Central  Recruit  Stations,  each  responsi- 
ble for  specified  areas.  In  the  fiscal  year  of  1917,  the  total 
number  of  stations,  including  auxiliary  and  temporary  sta- 
tions, reached  as  its  maximum  724.  Here  men  were  recruited 
for  different  arms  of  the  service,  mainly  for  the  line,  Medical 
Department  and  Quartermaster  Corps.  Normally  recruits 
were  sent  to  Recruit  Depots  for  examination  and  enlistment, 
and  assignments  were  made  semi-annually.  After  April,  1917, 
recruits  were  also  sent  direct  to  camps  where  new  regiments 
were  forming  and  in  addition  the  assignments  from  Depots 
were  made  as  speedily  as  possible. 

After  December  15,  1917,  no  voluntary  enlistments  of  draft 
registrants  was  permitted,  but  Recruit  stations  for  men  not 
registered  were  continued.  The  recruitment  from  July,  1917, 
to  April,  1918,  was  250,058.  From  May  1,  1918,  the  enlist- 
ments into  the  Regular  Army  were  discontinued,  but  the 
Recruit  Stations  handled  special  inductions  for  registrants 
amounting  to  58,411  by  July,  1918. 


PERSONNEL  TASK  IN  1917  31 

Under  Section  55  of  the  National  Defense  Act  of  June  8, 
1916,  men  could  be  obtained  for  the  army  by  enlisting  them 
in  the  Enlisted  Reserve  Corps  of  the  Engineer,  Signal,  and 
Quartermaster  Corps  and  the  Ordnance  and  Medical  Depart- 
ments, and  subsequently  calling  them  to  active  duty.  To 
June  30,  1918,  approximately  80,000  members  of  the  Enlisted 
Reserve  Corps  had  been  ordered  to  active  duty.  The  Enlisted 
Reserve  Corps  was  a  device  to  provide  a  reserve  during  peace 
time,  and  it  naturally  was  not  adapted  to  expansion  during 
the  period  of  the  war. 

The  official  recruiting  "service  was  supplemented  throughout 
the  war  by  the  work  of  special  recruiting  missions  authorized 
to  induct  for  special  army  duties  registrants  who  were  outside 
a  current  call.  The  Engineers,  Ordnance,  Air  Service,  Signal 
Corps,  Medical  Corps,  Motor  Transport  and  other  corps  all 
independently  sought  men  specially  qualified  for  their  own 
services.  These  campaigns,  while  they  did  yield  specialists, 
were  harmfully  competitive,  since  they  frequently  sought  the 
same  kind  of  personnel,  and  the  most  active,  rather  than  the 
most  needy  corps  got  the  recruits.  Undoubtedly,  had  the  war 
continued,  arrangements  would  have  been  completed  for  sup- 
plying all  specialists  through  one  central  agency. 

The  Operation  of  the  Draft.  From  September,  1917,  the 
main  source  of  supply  of  men  for  the  Army  was  the  selective 
service  induction  carried  on  by  the  4,648  Local  Boards  of  the 
country.  The  dates  and  numbers  of  these  inductions  appear 
in  the  table  on  the  following  page. 

The  administration  of  the  draft  had  to  do  something  more 
than  supply  men  to  the  army.  It  had  to  classify  the  regis- 
trants, select  those  who  could  serve  in  the  army  with  the 
least  national  social  and  economic  loss,  and  reserve  for  the 
industrial  and  agricultural  service  of  supply  the  men 
competent  to  fill  key  positions  requiring  years  of  previous 
training. 

There  took  place,  consequently,  in  the  Local  and  District 
Boards,  the  first  rough  classification  and  placement  of  men. 


32 


HISTORY  OF  PERSONNEL 


Men  inducted  into  the  Army  under  Selective  Service  Law,  by  months1 


Month. 


Men  in- 
ducted. 


Month. 


Men  in- 
ducted. 


1917 

September    296,678 

October     163,644 

November    35,721 

December   20,320 

1918 

January    23,288 

February    83,779 

March    132,484 

April    174,377 


1918 

May  373,063 

June    301,941 

July  401,147 

August    282,898 

September    252,295 

October   250,000 

November  10,000 


Total    2,801,635 


Each  registrant  indicated  his  occupational  ability  in  the  ques- 
tionnaire, using  the  standard  army  table  of  occupations  as 
his  guide.  This  information,  supplemented  by  other  evidence, 
aided  the  draft  authorities  in  determining  where  the  men 
should  serve — in  civil  life,  in  war  industry,  or  in  the  Army. 

The  prompt  acceptance  by  the  nation  of  the  principle  of 
selective  service  won  the  admiration  of  our  Allies.  The  wis- 
dom with  which  the  principle  was  applied  and  administered 
commanded  the  increasing  confidence  of  the  country.  No 
other  nation  has  ever  raised  a  great  national  army  so  rapidly 
and  with  so  little  resulting  popular  irritation  and  hostility. 

Administration  of  Enlisted  Personnel.  In  peace  times  the 
control  of  personnel  within  the  Army  was  a  comparatively 
simple  matter.  For  the  line,  the  Field  Headquarters,  the 
Department  and  The  Adjutant  General  kept  the  records 
and  issued  the  orders  for  troop  movements.  For  the  var- 
ious staff  corps,  the  Office  of  the  Chief  of  the  Bureau 
kept  records  and  made  allotments  and  assignments  of 
the  very  limited  personnel,  frequently  as  the  result  of  first 
hand  personal  knowledge  of  the  men  available.  An  officer 
long  in  the  service  might  easily  know  the  needs  of  the  various 


1  From  Annual  Report  of  the  Secretary  of  War,  1918. 


PERSONNEL  TASK  IN  1917  33 

stations  and  be  acquainted  with  the  best  sources  of  supply 
for  men  of  a  given  kind.  Recruits  were,  in  general,  assigned 
to  units  twice  a  year,  and  there  was  plenty  of  time  to  muster 
them  in  and  prepare  their  records.  There  was  also  time  to 
train  green  men  for  the  duties  in  the  Army  requiring  trade 
skill,  and  as  compared  with  the  great  number  of  technical 
jobs  in  the  war  army,  the  need  for  trade  skill  was  small. 

Under  war  conditions,  men  were  received  by  the  hundred 
thousand,  and  technical  units  had  to  be  formed  with  the 
utmost  speed  from  a  personnel  already  possessing  trade 
ability.  The  old  system  resembled  a  craftsman's  shop  where 
each  article  is  made  by  hand  and  finished  by  one  individual. 

The  new  system  had  to  be  like  a  great  factory  where  each 
process  is  separated  and  volume  production  is  assured  through 
rigid  functionalization  and  organization.  Men  had  to  be 
sorted,  recorded  and  assigned  as  goods  in  some  great  ware- 
house are  received,  checked,  sorted,  stored  and  shipped  on 
order.  And  not  one  but  sixteen  great  personnel  establish- 
ments and  twenty  smaller  ones  had  to  be  created  and  the 
necessary  administrative  overhead  in  Washington  called  into 
existence. 

In  this  emergency  the  Army  availed  itself  of  the  abilities 
of  men  already  expert  in  personnel  work.  It  established  on 
August  5,  the  Committee  on  Classification  of  Personnel  in  the 
Army,  under  the  direction  of  The  Adjutant  General.  The 
Committee  in  turn,  called  in  experienced  employment  mana- 
gers from  great  commercial  enterprises  and  placed  them  in 
the  field.  There  they  aided  the  officers  of  the  Regular  Army  in 
setting  up  a  system  capable  of  receiving,  examining,  classify- 
ing, clothing  and  reporting  to  Washington,  1,500  men  a  day 
from  each  of  the  great  receiving  camps. 

The  central  office  directed  the  work.  It  listed  the  trades 
and  compiled  the  numbers  the  Army  needed.  The  organiza- 
tions in  the  field  classified  the  soldiers  by  these  trades  and 
occupations  and  reported  them  to  The  Adjutant  General. 
Then  on  order  of  the  Operations  Division  of  the  General 


34  HISTORY  OF  PERSONNEL 

Staff,  the  men  whose  trade  experience  qualified  them  for 
special  duty  in  the  Army  were  assigned  to  the  units  whose 
requisitions  for  these  specialists  had  priority. 

The  chapters  that  follow  describe  the  development  of  the 
personnel  organization  and  the  way  in  which  each  step  of 
the  process  was  evolved.  The  principles  of  organization  and 
the  statement  of  the  process  are  simple.  The  details  of 
development  and  operation  are  more  complicated.  The  results 
represent  the  achievement  of  Army  officers  and  civilian  spe- 
cialists working  together  to  make  possible  the  speedy  fulfill- 
ment of  the  nation's  determination  to  win  the  war. 

COMMISSIONED  PERSONNEL 

In  many  ways,  the  Army  faced  a  more  difficult  problem  in 
securing  officers  than  in  securing  men,  even  technical  enlisted 
specialists.  Many  thousands  of  men  knew  trades  which,  with 
slight  adjustment  could  be  used  in  the  Army  work,  but  very 
few  indeed  knew  the  details  of  military  procedure  or  field 
operation.  Yet  when  the  war  closed  there  were  194,228  offi- 
cers, a  number  larger  than  the  whole  of  our  Army  in  1917. 

The  National  Defense  Act  of  June  3,  1916,  had  established 
the  Officers'  Reserve  Corps,  and  by  July  1,  1917,  21,543  offi- 
cers had  been  commissioned  in  this  corps.  Officer  training  had 
received  a  great  stimulus  in  1916  through  the  Plattsburg  idea, 
for  which  Major  General  Leonard  Wood  was  largely 
responsible. 

Camps,  somewhat  after  the  Plattsburg  model,  for  testing 
and  training  reserve  officers  and  candidates  were  conducted  in 
four  series,  beginning  May  and  September,  1917,  and  January 
and  May,  1918.  Thereafter,  continuous  schools  for  officers 
were  maintained  at  five  permanent  replacement  camps.  The 
table  on  the  following  page  indicates  the  result  of  the  earlier 
phases  of  this  program. 

In  addition  officers  were  obtained  from  a  camp  for  colored 
officers,  from  Staff  Corps  Schools,  from  Reserve  Officers' 
Training  Corps  Units  at  educational  institutions  (later  the 


PERSONNEL  TASK  IN  1917 


35 


Commissions  granted  through  first  three  series  of  Officers'  Training 

Camps* 


Rank. 

Inf. 

Cav. 

F.  A. 

C.A.C. 

Eng. 

Q.  M. 

Statis- 
tics. 

Ord. 

Sig. 

Total. 

2 

2 

1 

1 

185 

18 

37 

1 

50 

2 

i 

294 

3,379 

251 

849 

329 

419 

147 

55 

5  429 

7,665 

258 

2,128 

575 

747 

75 

407 

519 

12,374 

Second  lieutenant. 

23,346 

1,371 

8,540 

1,158 

750 

3,067 

77 

211 

687 

39,207 

Total  

34,578 

1,898 

11,554 

2,063 

1,966 

3,067 

152 

767 

1,262 

57,307 

Students'  Army  Training  Corps)  from  promotion  within  the 
Regular  Army,  and  from  commissioning  specialists  direct  from 
civil  life. 

For  officers  as  for  men,  methods  of  selection,  classification, 
and  promotion  had  to  be  devised.  For  the  selection  of  the 
successful  candidates  in  the  Officers'  Training  Camps,  and  for 
estimating  and  recording  the  efficiency  of  officers,  the  Officers' 
Rating  Scale  was  prepared  and  introduced.  In  addition,  the 
Officers'  Qualification  Cards  were  prepared  and  ultimately 
used  for  all  officers  at  home  and  abroad. 

The  competition  present  in  recruiting  enlisted  personnel 
was  also  an  unfortunate  feature  in  obtaining  officers.  Not 
until  the  establishment  of  the  Personnel  Branch  of  the  General 
Staff  shortly  before  the  cessation  of  hostilities,  was  this  waste- 
ful duplication  of  effort  eliminated  and  central  control  of 
commissioned  personnel  established. 

The  entire  personnel  task  of  the  Army  in  1917  and  there- 
after was  complicated  by  frequent  revisions  of  plans  for  the 
size  of  the  force  needed,  and  by  the  distance  of  the  organizing 
centers  from  the  front.  An  accurate  forecast  of  needs  for 
officers  and  men,  with  a  statement  of  numbers  and  grades  for 
each  kind  of  ability,  could  not  be  made.  Operations  had  to 
provide  a  safe  estimated  margin.  This  complicated  the  train- 
ing as  well  as  the  procurement  program. 


'Annual  Report  of  the  Secretary  of  War,  1918,  p.  16. 


36  HISTORY  OF  PERSONNEL 

In  spite  of  difficulties,  however,  the  task  of  forming  the 
Army  at  maximum  speed  was  pushed  night  and  day,  and  the 
German  request  for  an  armistice  on  November  11  must  be 
attributed  in  part  to  their  certain  knowledge  that  a  successful 
national  mobilization — military  and  industrial — had  been 
accomplished  in  the  United  States. 


SECTION  II. 
DEVELOPMENT  OF  THE  COMMITTEE 

This  section  describes  the  origin  and  development 
of  the  organization  created  by  the  Secretary  of 
War  to  build  a  personnel  system  in  the  Army  and 
outlines  its  sources  and  antecedents.    In  consider- 
ing this  subject,  a  brief  outline  (in  Chapter  3)  of 
the  sources  of  Personnel  Work — traditional  Army 
practice,  the  employment  management  movement, 
and  applied  psychology — is  followed  (in Chapter  4) 
by  an  historical  review  of  the  circumstances  sur- 
rounding the  early  efforts  to  introduce  a  scientific 
method  of  rating  officers.    Chapter  5  deals  with  the 
establishment  and  first  work  of  a  personnel  commit- 
tee designated  by  the  Secretary  of  War  as  the  Com- 
mittee on  Classification  of  Personnel  in  the  Army. 
How  Personnel  Work  was  first  introduced  in  the 
divisional  camps   of  the  country  is   described  in 
Chapter  6.    The  last  three  chapters  of  the  section 
carry  on  the  history  of  development,  through  the 
period  of  expansion  (Chapter  7),  the  transfer  of 
functions  to  the  General  Staff  (Chapter  8)  and  the 
status  of  the  personnel  organization  at  the  time 
when    mobilization    ceased    with    the    consequent 
transition  of  personnel  duties  to  conform  with  the 
processes  of  demobilization  (Chapter  9) . 

37       • 


CHAPTER  3 

• 

FORERUNNERS  OF  THE  ARMY  PERSONNEL 
SYSTEM 

The  history  of  the  Army  personnel  organization  during 
the  war  exhibits  a  development  that  is  traceable  to  three  dis- 
tinct sources.  The  first  source  is  found  in  traditional  Army 
practice.  The  second  is  a  contribution  of  business  and  indus- 
try, namely  the  employment  management  movement.  The 
third  source  of  ideas  and  methods  which  merged  with  the 
others  to  develop  a  practicable  Army  personnel  system,  is 
found  in  the  scientific  approach  to  the  study  of  human  abili- 
ties which  has  been  fostered  in  university  laboratories  of 
psychology  for  a  generation,  and  which  more  recently  has  been 
applied  by  certain  large  business  concerns  to  the  practical 
problem  of  discovering  talent  and  selecting  the  right  man  for 
the  right  place.  The  classification  and  placement  of  officers 
and  soldiers  would  not  have  gone  forward  as  expeditiously  as 
it  did  if  there  had  been  lacking  any  one  of  these  three  com- 
ponents, the  military,  the  industrial,  and  the  scientific. 

Employment  Management.  When  America  entered  the  war, 
the  practice  of  employment  management  was  just  beginning 
to  emerge  into  the  status  of  a  profession.  Not  very  many 
years  had  elapsed  since  large  manufacturing  and  commercial 
concerns  first  began  quite  generally  to  place  responsibility 
for  their  personnel  in  the  hands  of  one  executive,  the  employ- 
ment manager.  This  executive  was  selected  for  his  post 
because  he  was  an  organizer  and  systematizer,  and  a  good 
judge  of  men,  and  not  because  he  had  had  any  special  train- 
ing for  his  new  duties;  for  there  existed  neither  the  school 
to  train  employment  executives,  nor  any  considerable  body 
of  knowledge  and  accepted  practice  which  could  have  been 

39 


40  HISTORY  OF  PERSONNEL 

taught  in  such  a  school.  But  very  rapidly  during  the  past 
fifteen  years,  such  a  substantial  body  of  standard  theory  and 
procedure  in  employment  practice  has  taken  shape.  Men  of 
broad  experience  have  crystallized  their  thought  in  books  and 
in  numerous,  technical  articles  on  employment  procedure,  an- 
alysis of  the  causes  of  labor  turnover  and  of  the  methods  of 
lessening  it,  sources  of  labor  supply,  forms,  record  blanks, 
the  routine  of  employment  office  management,  and  the  like. 

Interchange  of  ideas  and  experience  took  place  also  through 
frequent  periodic  meetings  of  various  local  Employment  Man- 
agers' Associations,  the  first  of  which  was  organized  in  Bos- 
ton in  1911.  The  annual  convention  of  the  National  ^Associa- 
tion of  Corporation  Schools  and  the  annual  Conference  of 
Employment  Managers  likewise  brought  together  the  ablest 
of  the  men  and  women  who  were  engaged  in  the  selection, 
placement  and  development  of  employes.  From  these  and 
other  sources  grew  a  fund  of  information  of  a  more  or  less 
technical  sort.  In  1914  the  Tuck  School  of  Business  Admin- 
istration at  Dartmouth  College  introduced  a  course  of  train- 
ing for  prospective  employment  managers  and  during  the 
next  year  a  research  course  in  employment  management  was 
given  at  Northwestern  University.  The  result  of  all  these 
tendencies  was  the  steady  building  up  of  a  professional  con- 
sciousness among  men  engaged  in  employment  management, 
and  the  creation  of  a  nucleus  of  standard  personnel  practice 
which,  at  the  critical  moment,  was  whole-heartedly  made 
available  for  Army  use. 

During  the  war  the  employment  management  movement 
received  a  tremendous  impetus.  The  acuteness  of  the  labor 
situation  in  thousands  of  factories,  munition  plants  and  ship 
yards  forced  many  employers  to  contemplate  for  the  first  time 
the  functionalizing  of  their  employment  practice.  Under  the 
leadership  of  Capt.  Boyd  Fisher  of  the  Ordnance  Department, 
detailed  to  the  Council  of  National  Defense,  short  intensive 

l  Bibliography  of  Personnel  Management,  by  Coss  and  Outhwalte.     War 
JJepartment,  1919. 


PERSONNEL   SYSTEM  41 

courses  for  the  training  of  employment  managers  were  given 
in  several  industrial  centers.  The  graduation  of  the  first 
class  of  these  emergency-trained  managers  at  Rochester  in 
May,  1918,  coincided  with  the  meeting  there  of  a  convention 
of  employment  managers,  eight  hundred  strong,  at  which 
was  completed  the  organization  of  the  National  Association 
of  Employment  Managers.  Perusal  of  succeeding  chapters 
of  this  volume  will  show  not  only  how  the  employment  man- 
agement movement  has  helped  the  Army,  but  also  how  the 
development  of  methods  and  practice  in  the  Army  personnel 
work  has  given  in  turn  a  powerful  stimulus  to  the  further 
spread  and  development  of  employment  management  in  in- 
dustry. 

Applied  Psychology.  The  scientific  approach  to  problems 
of  personnel  has  its  roots  in  the  psychological  laboratories  of 
the  universities.  There,  for  more  than  thirty  years  scientists 
have  been  busy  with  systematic  researches  into  human  traits, 
and  with  measurements  of  differences  in  people's  abilities. 
The  interest  of  these  investigators  has  been  chiefly  theoretical. 
They  wanted  to  be  able  to  give  a  more  complete  and  accurate 
scientific  account  of  human  nature  and  of  the  laws  of  behavior 
than  is  possible  without  the  use  of  a  rigorous  experimental 
method.  But  more  recently  there  has  been  an  increasingly 
insistent  demand  from  commerce  and  industry  as  well  as 
from  education  and  medicine  that  the  methods  of  the  ex- 
perimental psychologist  should  be  applied  to  practical  prob- 
lems of  human  adjustment  and  control.  If  a  person's  in- 
telligence or  alertness  or  retentiveness  or  ease  of  learning  or 
mechanical  aptitude  or  esthetic  sensitivity  could  be  determined 
and  compared  with  that  of  other  people  in  the  psychological 
laboratory,  why  should  not  these  same  methods  be  adapted 
to  the  requirements  of  employers  who  want  to  ascertain 
where  each  of  their  employes  can  work  with  a  maximum  of 
satisfaction  to  himself  and  of  advantage  to  the  organization? 
The  Bureau  of  Salesmanship  Research.  Of  the  attempts 
to  bring  psychological  methods  into  helpful  relation  with 


42  HISTORY  OF  PERSONNEL 

business,  perhaps  the  most  significant  was  the  Bureau  of 
Salesmanship  Research  at  the  Carnegie  Institute  of  Tech- 
nology in  Pittsburgh.  This  Bureau  was  a  cooperative  enter- 
prise, founded  in  1916  by  Mr.  Edward  A.  Woods,  a  promin- 
ent and  successful  business  man  of  Pittsburgh,  with  the 
participation  of  thirty  concerns  doing  business  of  National 
scope.  Its  purpose  was  to  study  the  best  methods  then  used 
in  selecting,  developing  and  supervising  salesmen,  and  also 
to  try  out  new  methods  which  showed  promise.  The  Bureau 
maintained  a  small  scientific  staff  of  experts  who  developed 
the  new  methods  and  put  them  to  the  test  of  actual  trial, 
with  the  help  of  the  employment  managers  and  sales  managers 
of  the  cooperating  firms.  The  Director  of  this  Bureau  was 
Dr.  Walter  Dill  Scott,  and  its  Executive  Secretary,  Dr. 
Walter  V.  Bingham.  Associated  with  them  were  Dr.  G.  M. 
Whipple,  Dr.  J.  B.  Miner  and  a  group  of  research  assistants. 
During  the  first  year  of  the  Bureau's  activities  they  worked 
out  a  manual  of  "Aids  in  Selecting  Salesmen"  which 
embodied  the  best  available  ideas,  old  and  new,  in  personnel 
selection.  There  was  a  Personal  History  Blank  which  went 
straight  at  the  essential  facts  about  an  applicant's  career. 
There  was  a  model  Letter  to  Former  Employers,  designed 
to  secure  a  more  accurate,  illuminating  and  pertinent  response 
than  is  usually  received  through  correspondence  with  an  ap- 
plicant's references.  There  was  a  form  to  guide  the  employer 
during  his  personal  interview  with  the  applicant,  designed 
to  focus  his  attention  on  those  essential  personal  traits  which 
it  is  possible  to  evaluate  under  such  circumstances.  There 
was  a  Rating  Scale,  ingeniously  devised  so  that  the  inter- 
viewer could  make  concrete  comparisons  of  the  applicant 
with  successful  and  unsuccessful  salesmen  whose  traits  were 
well  known  to  him,  and  so  that  he  could  express  in  numerical 
form  the  resulting  judgments  about  the  applicant's  char- 
acteristics. And  finally  there  was  a  set  of  mental  tests,  for 
use  in  getting  a  measure  of  the  applicant's  general  intelligence, 
his  range  of  information,  his  facility  in  the  use  of  language, 


PERSONNEL    SYSTEM  43 

his  imagination  or  foresight,  and  his  speed  and  accuracy  in 
such  routine  clerical  work  as  a  salesman  must  often  do 
when  making  out  orders  and  reports. 

All  five  of  these  "Aids" — the  mental  tests,  the  rating 
scale,  the  interviewer's  blank,  the  letter  to  former  employers, 
and  the  personal  history  blank — had  been  prepared  with  a 
view  to  their  use  in  selecting  successful  high-grade  sales- 
men, and  were  proving  their  worth  for  that  purpose;  but  the 
principles  which  they  embodied  were  applicable,  with  only 
slight  modifications,  to  the  selection  of  men  for  any  post  call- 
ing for  superior  intelligence  and  personal  qualities.  Recog- 
nizing this  fact,  the  business  men  present  at  the  .annual 
meeting  of  the  cooperating  members  of  the  Bureau  June  1, 
1917,  voted  unanimously  to  tender  the  services  of  the  scientific 
staff  of  the  Bureau  to  the  War  Department,  and  to  make 
available  for  Army  use  whatever  of  the  Bureau  methods  might 
be  found  applicable  to  military  needs. 

Already  Dr.  Bingham  and  Dr.  Whipple  had  left  at  the  in- 
vitation of  the  National  Research  Council  to  join  with  R.  M. 
Yerkes  of  Harvard,  E.  L.  Thorndike  of  Columbia,  L.  M. 
Terman  of  Stanford,  and  other  psychologists  in  working  out 
suitable  methods  for  use  in  making  mental  examinations  of 
recruits.  And  Dr.  Scott,  with  his  research  assistants,  had 
been  busy  adapting  the  rating  scale  so  that  it  might  be  use- 
ful as  an  aid  in  selecting  successful  candidates  at  Officers' 
Training  Camps.  But  no  one  at  that  time  foresaw  what  a 
vital  contribution  toward  the  organization  of  the  National 
Army  would  emerge  from  the  initial  investigations  into  scien- 
tific personnel  work,  made  possible  by  the  Bureau  of  Sales- 
manship Research.  No  one  realized  how  the  intense  stress 
of  effort  and  devotion  and  patriotic  impulse  was  destined  to 
fuse  into  one  effective  personnel  system  the  best  knowledge 
and  experience  of  the  theoretical  scientist,  the  practical  em- 
ployment manager  and  the  trained  Army  officer. 


CHAPTER  4 

EARLY  EFFORTS  TO  INTRODUCE  SCIENTIFIC 
METHODS  OF  RATING  OFFICERS 

ORIGIN  OF  RATING  SCALE 

Early  in  May,  1917,  the  first  form  of  the  rating  scale  for 
the  selection  of  officers  was  devised  by  Dr.  Scott  and  his 
associates  in  the  Bureau  of  Salesmanship  Research  of  Carnegie 
Institute  of  Technology.  It  was  similar  in  form  to  the  scales 
previously  used  in  several  business  houses  for  selecting  em- 
ployees for  executive  and  other  positions.  It  applied  the 
principle  of  comparing  the  individual  with  men  of  known 
ability  in  the  position  for  which  he  was  a  candidate.  The 
qualifications  used  as  a  basis  for  comparison  were,  of  course, 
differentt  in  the  case  of  the  Army  from  those  used  in  the 
business  houses,  inasmuch  as  the  requirements  for  military 
success  are  somewhat  different  from  those  for  civilian  success. 

This  first  form  was  then  printed,  in  order  that  it  might  be 
subjected  to  a  further  refining  process,  which  would  make 
it  more  completely  satisfactory  for  the  purpose  intended.  The 
printed  blanks  were  sent  to  various  people  who  were  thought 
likely  to  be  able  to  suggest  improvements,  and  who  might 
also  be  in  a  position  to  bring  it  to  the  attention  of  military 
authorities.  One  copy  was  sent  to  Mr.  Paul  S.  Achilles  at 
Plattsburg.  He  submitted  it  through  military  channels  to  the 
Commanding  Officer  at  Plattsburg  in  June,  and  toward  the 
close  of  the  month  it  was  returned  with  the  following  nota- 
tion: "The  Commanding  Officer  will  not  be  able  to  use  this." 

MILITARY  AUTHORITIES  BECOME  INTERESTED 

Meanwhile,  another  copy  sent  to  Dr.  E.  L.  Thorndike  of 

44 


EARLY  EFFORTS  OF  RATING 45 

Columbia  University  had  been  shown  by  him  to  Mr.  F.  P. 
Keppel,  then  Assistant  to  Secretary  of  War  Baker,  later 
appointed  Third  Assistant  Secretary  of  War.  Mr.  Keppel 
became  much  interested  and  asked  for  further  data.  On  June 
15,  Dr.  Scott  sent  him  a  full  explanation  of  the  rating  scale, 
and  Mr.  Keppel  brought  the  whole  matter  to  the  attention 
of  The  Adjutant  General  of  the  Army,  Major  General  H.  P. 
McCain. 

The  impression  which  the  scale  made  upon  General  McCain 
and  his  associates  in  the  Adjutant  General's  office  is  indicated 
by  the  following  letter : 

WAR  DEPARTMENT 
Washington,  D.  C.,  June  30,  1917. 
Professor  Walter  Dill  Scott, 

Carnegie  Institution  of  Technology, 
Pittsburgh,  Pennsylvania. 

Dear  Sir: 

Your  letter  of  June  15th  with  inclosed  rating  scale  and 
rating    sheet    received.      If  promotion    by    selection    is 
adopted  for  the   National  Army,  the  War  Department 
contemplates  using  this  method  of  rating  officers. 
Your  assistance  is  much  appreciated. 
Faithfully  yours, 
F.  P.  KEPPEL, 

Assistant  to  Secretary  of  War. 

A  few  days  after  writing  this  letter,  Mr.  Keppel  wrote  again 
suggesting  that  Dr.  Scott  come  down  to  discuss  the  matter  at 
length  with  the  officers  of  the  Adjutant  General's  Department. 
Dr.  Scott  was  at  the  time  away  on  a  Western  trip  and  there- 
fore did  not  receive  the  letters  until  July  5,  whereupon  he 
telephoned  to  Mr.  Keppel  expressing  his  willingness  to  come 
to  Washington  on  the  first  train.  He  was  told  that  they  would 
be  very  glad  to  see  him. 

On  the  morning  of  July  .6,  Dr.  Scott  arrived  in  Washington 
and  met  Mr.  Keppel,  who  introduced  him  to  General  McCain 
and  Colonel  (later  Brigadier  General)  Eugene  F.  Ladd,  who 


46  HISTORY  OF  PERSONNEL 

was  in  charge  of  commissioned  personnel.  Both  had  examined 
the  scale  and  believed  that  it  might  possibly  have  some  value. 
Colonel  Ladd  had  not  thought  of  the  possibility  of  the  use 
of  the  scale  for  selecting  officer-candidates  but  only  for  the 
promotion  of  officers.  He  assumed  that  the  method  in  vogue 
at  the  schools  was  entirely  satisfactory.  When  the  request 
was  made  that  the  scale  be  tried  out  in  an  experimental  way 
at  one  of  the  officers'  training  schools,  Colonel  Ladd  called 
Major  (later  Brigadier  General)  Alfred  W.  Bjornstad  and 
Major  (later  Lieutenant  Colonel)  Grenville  Clark,  and  turned 
the  whole  matter  over  to  them  with  the  order  that  they  investi- 
gate the  proposed  method  and  take  any  necessary  action. 
Major  Bjornstad  was  just  about  to  leave  Washington  and 
suggested  that  Major  Clark  take  care  of  the  matter  alone. 
To  this  Colonel  Ladd  agreed. 

The  pressure  of  work  upon  Major  Clark  was  so  great, 
however,  that  he  found  it  impossible  to  give  the  necessary 
time  that  day  to  the  consideration  of  the  scale,  and  as  the 
work  at  the  office  was  urgent,  he  asked  Dr.  Scott  to  return 
to  Pittsburgh  and  come  back  to  Washington  five  days  later. 
To  this  Dr.  Scott  agreed.  His  first  great  task  had  been 
accomplished,  that  of  securing  the  attention  of  the  Army 
authorities  and  their  interest  in  the  possibilities  of  the  rating 
scale. 

During  the  next  few  days  Dr.  Scott  spent  much  time  in 
trying  to  make  improvements  in  the  scale.  As  a  result  of 
this  consideration,  and  of  suggestions  received  from  various 
sources,  some  changes  were  made.  By  the  night  of  July  10 
he  was  confident  that  the  scale  in  its  revised  form  would  prove 
a  really  practicable  and  satisfactory  method  of  selection. 

When  he  met  Major  Clark  in  Washington  again  on  July  11 
he  found  conditions  much  as  they  were  at  the  time  of  his 
previous  visit.  To  accomplish  anything  at  all  it  was  necessary 
to  go  to  Major  Clark's  apartment,  where  they  could  work 
undisturbed.  During  the  three  hour  conference  which 
followed,  the  scale  was  completely  analyzed  and  dissected, 


EARLY  EFFORTS  OF  RATING  47 

and  was  then  reconstructed  in  very  much  the  original  form, 
but  with  the  change  in  the  fifth  qualification  from  "Value  to 
the  Regiment"  to  "General  Impression."  At  a  conference 
at  Fort  Myer,  on  July  16,  this  expression  was  changed  to 
"General  Value  to  the  Service." 

This  form  was  essentially  the  same  as  that  of  the  scale  in 
all  subsequent  editions  and  revisions.  It  provided  for  ratings 
on  five  essential  qualifications.  To  the  first  four  of  them  a 
maximum  of  15  points  was  assigned.  To  the  fifth,  "General 
Value  to  the  Service,"  a  maximum  of  40  points  was  assigned. 

Tests  at  Fort  Myer.  Before  it  could  be  certain  that  the 
scale  would  prove  a  satisfactory  method  of  selecting  officers, 
it  was  necessary  that  it  be  subjected  to  a  test.  Dr.  Scott, 
therefore,  suggested  that  he  be  permitted  to  demonstrate  the 
scale  to  the  officer  in  command  at  Fort  Myer.  Mimeographed 
copies  of  the  scale  were  prepared  and  the  following  letter  of 
introduction  was  written  by  Major  Clark  and  Colonel  W.  T. 
Johnston  of  the  Adjutant  General's  Department,  who  had 
also  become  interested  in  the  matter: 

July  11,  1917. 

From:       The  Adjutant  General  of  the  Army, 
To:  Commanding  Officer,  Officers'  Training  Camp, 

Fort  Myer,  Virginia. 

Subject:  Method  of  selecting  those  suitable  for  commis- 
sion in  each  training  unit. 

1.  In   view   of  the   fact  that  the   present   method   of 
selecting  and  classifying  men  in  the  Officers'  Training 
Camps  under  instructions  of  May  18,  1917,  is  not  deemed 
entirely  satisfactory,  it  is  desired  to  work  out  a  more 
careful   and   scientific   system   for  the   second   series   of 
camps.     It  is  desired  to  experiment  with  the  method  re- 
ferred to  below  in  one  or  more  companies  of  your  camp. 
For  this  purpose  you  will  select  the  commanding  officer  of 
the  company  or  companies  whose  judgment  and  comment 
on  the  method  will  be  most  valuable. 

2.  A  plan  for  this  purpose  has  been  worked  out  by 
Mr.  Walter  Dill  Scott  in  consultation  with  Officers  in  the 
War  Department,  which  is  believed  to  be  of  value.     Mr. 


48  HISTORY  OF  PERSONNEL 

Scott  will  present  this  letter  and  you  will  permit  him  to 
explain  the  method  to  the  company  commander  or  com- 
manders selected  and  afford  him  proper  opportunity  for 
giving  the  method  a  thorough  test. 

By  order  of  the  Secretary  of  War, 
W.  T.  JOHNSTON 

Adjutant  General. 

On  July  12,  Dr.  Scott  presented  his  credentials  to  the  Com- 
manding Officer  at  Fort  Myer,  Colonel  Charles  W.  Fenton, 
and  the  senior  instructor,  Colonel  William  J.  Glasgow.  Major 
George  R.  Spalding  and  Major  E.  O.  Hunt  were  called  into 
conference  with  these  officers  and  in  a  short  time  all  of  them 
were  converted  to  the  value  of  the  scale.  As  the  letter 
suggested  that  the  system  be  tried  out  by  company  com- 
manders, Captain  Edmond  R.  Tompkins  and  Captain  H.  D. 
Schultz  were  asked  to  make  practical  tests  with  it.  After 
about  an  hour's  work  they  became  fully  convinced  of  the  value 
of  the  scale  and  submitted  the  following  report  upon  it: 

FORT  MYER  TRAINING  CAMP  FOR  RESERVE 

OFFICERS 

(Copy)  Fort  Myer,  Va.,  July  12,  1917. 

From:       Captain  H.  D.  Schultz,  37th  Infantry. 
To:  Commanding  Officer,  5th  Training  Regiment. 

Subject:  Report  on  individual  rating  for  selecting  candi- 
dates. 

1.  I  have  studied  and  put  to  an  actual  test  the  individual 
rating  sheets  for  selecting  candidates,  presented  to  me  by 

Mr.  Walter  Dill  Scott,  and  find  the  system  practicable. 
Care  is  necessary  in  making  the  scale,  care  being  taken 
to  select  officers  of  diversified  ability.     After  this  scale 
has  been  prepared  the  time  required  to  grade  the  candi- 
dates will  be  very  short. 

2.  The  good  points  in  Mr.  Scott's  system  are: 

(1)  That  you  have  a  concrete  standard  upon  which 

to  base  your  judgment  of  the  candidates. 

(2)  You  select  officers  well  known  to  you  and  have 

them  as  living  examples  of  what  you  consider 
a  candidate  for  commission  should  be. 


EARLY  EFFORTS  OF  RATING 49 

(3)  It  enables  you  to  get  the  independent  judg- 
ment of  any  assistants  who  may  be  assigned 
to  your  company. 

H.  D.  SCHULTZ 

I  concur  in  the  above. 

EDMOND  R.  TOMPKINS 
This  system  is  the  one  for  which  I  have  been 

groping. 
(Capt.)  J.  B.  Bennet. 

It  was  agreed,,  however,  that  a  more  thorough  try-out  was 
necessary,  and  for  that  purpose  all  the  officers  at  Fort  Myer 
were  assembled  on  the  following  day.  Each  of  them  made 
out  a  scale  and  rated  ten  of  the  men  in  his  own  command 
according  to  the  rating  scale  method.  They  then  voted 
unanimously  that  if  the  War  Department  permitted  they  would 
use  the  rating  scale  in  rating  the  men  and  in  recommending 
them  for  commissions  in  the  first  series  of  Officers'  Training 
Camps. 

Tests  at  Plattsburg.  These  favorable  reports  on  the  prac- 
ticability of  the  rating  scale  were  most  reassuring  to  the 
Adjutant  General's  Office.  It  was  felt,  however,  that  it  was 
best  not  to  regard  the  judgment  at  Fort  Myer  as  in  any  sense 
final,  but  inasmuch  as  Plattsburg  was  the  head  of  the  Officers' 
Training  Movement,  the  judgment  of  the  officers  there  should 
be  secured  before  recommending  the  formal  adoption  of  the 
rating  scale.  Dr.  Scott  thereupon  set  off  for  Plattsburg  im- 
mediately with  a  letter  of  introduction  from  Colonel  Johnston 
to  the  Commanding  Officer.  Madison  Barracks  and  Fort 
Niagara  were  also  notified  to  send  representatives  to  Platts- 
burg to  confer  with  Dr.  Scott  and  the  Plattsburg  officers. 

This  visit  to  Plattsburg  was,  of  course,  the  most  critical 
situation  that  Dr.  Scott  had  to  face.  The  rating  scale  had 
already  been  submitted  and  rejected  there.  The  only  hope 
was  that  its  rejection  had  been  due  to  the  fact  that  the  scale 
had  not  been  personally  presented  and  explained  to  them, 
and  therefore  had  not  been  thoroughly  understood.  If  Platts- 
burg could  be  persuaded  to  reverse  its  decision,  then  the  scale 


50  HISTORY  OF  PERSONNEL 

would  be  adopted  and  would  be  used  in  the  Officers'  Training 
Camps.  If  the  previous  rejection  was  reaffirmed,  then  the 
work  which  had  already  been  done  would  be  wasted,  and  the 
rating  scale  method  would  probably  never  be  used  in  the 
Army. 

The  circumstances  of  Dr.  Scott's  reception  at  Plattsburg 
were  not  encouraging.  The  camp  adjutant  informed  him 
that  the  scale  had  been  considered  and  rejected,  and  that  the 
Commanding  Officer  could  not  be  seen  that  day.  It  was  not 
until  the  following  day  (Monday,  July  16),  when  the  officers 
from  Madison  Barracks  had  arrived,  that  Dr.  Scott  was  called 
into  conference  with  the  Commanding  Officer  and  the  Senior 
instructors  of  the  two  training  camps  at  Plattsburg.  There- 
upon Dr.  Scott  was  given  an  opportunity  to  present  the  facts 
about  the  scale. 

The  Plattsburg  officers  were  skeptical  and  were  not  so 
easily  convinced  of  the  merit  of  the  scale  as  the  officers  who 
had  previously  examined  it  had  been.  When  suggestions  for 
improvement  were  invited  they  ripped  the  scale  to  tatters. 
As  the  views  they  expressed  regarding  improvements  were 
almost  diametrically  opposed  to  one  another,  they  did  not 
come  to  any  agreement,  and  consequently,  toward  the  end  of 
the  conference  reinstated  the  scale  in  almost  its  original  form, 
but  put  more  emphasis  upon  previous  military  experience. 
They  finally  agreed  that  the  scale  should  be  presented  to  the 
officers  of  the  two  camps  at  Plattsburg. 

Here  again  the  rating  scale  met  the  test  in  every  respect. 
In  each  camp  the  officers  voted  that  they  believed  in  the  scale 
and  would  prefer  to  use  it  as  a  method  of  ranking  men  and 
recommending  them  for  commissions  at  the  end  of  this,  the 
first  series  of  the  Officers'  Training  Camps.  When  these 
results  were  reported  to  the  Commanding  Officer  he  imme- 
diately dictated  a  telegraphic  report  to  Washington.  In  it 
he  incorporated  his  reply  to  an  inquiry  he  had  just  received 
as  to  the  advisabilty  of  sending  Dr.  Scott  to  Fort  Sheridan 
and  Fort  Benjamin  Harrison,  where  other  Officers'  Training 


EARLY  EFFORTS  OF  RATING 51 

Camps  were  being  conducted.     The  telegram  as  a  whole  was 
as  follows: 

ADJUTANT  GENERAL  OF  THE  ARMY, 
Washington,  D.  C. 

Professor  Scott's  plan  is  useful  and  practicable.  It 
will  be  used  here  to  assist  in  selection  of  officers  at  end 
of  this  camp.  Recommend  it)  be  made  universal  for  all 
future  camps,  but  not  compulsory  for  this  camp.  Believe 
it  would  be  of  material  assistance  at  Harrison  and  Sheri- 
dan Camps. 

WOLF. 

Tests  at  other  Officers'  Training  Camps.  The  tests  at 
Fort  Benjamin  Harrison  and  Sheridan  resulted  in  much 
the  same  conclusion  as  those  previously  reached.  In  both 
cases  the  officers  became  enthusiastic  for  the  scale  and 
accepted  it.  At  Fort  Benjamin  Harrison,  Brigadier  Gen- 
eral E.  F.  Glenn  took  special  interest  in  the  work,  and  at 
Fort  Sheridan,  Colonel  William  J.  Nicholson,  the  Com- 
manding Officer,  stated  that  the  rating  scale  was  the  ideal 
system  which  he  had  always  intended?  to  work  out  and  have 
used. 

Dr.  Scott  then  went  on  to  Chicago,  where  he  had  a  con- 
ference with  Major  F.  F.  Stebbins  of  the  Central  Depart- 
ment, Major  W.  G.  Sills  from  Fort  Snelling,  and  Captain 
A.  M.  Ferguson  from  Fort  Riley.  They  likewise  approved 
the  scale  and  agreed  to  return  to  their  camps  and  attempt  to 
present  the  matter  to  their  officers,  so  that  the  rating  scale 
would  be  used.  It  may  here  be  noted  that  Captain  Ferguson 
became  much  interested  in  this  and  other  phases  of  the  per- 
sonnel work,  and  was  later  appointed  as  Officer  in  charge 
of  the  Personnel  Work  at  Washington. 

On  July  22,  Dr.  Scott  wired  to  Major  Clark  his  report  on 
the  progress  in  presenting  the  scale.  To  this  he  received 
the  following  reply: 

Dear  Prof.  Scott: 

Your  wire  of  July  22nd  just  came  on  my  desk.  Con- 
gratulate you  on  your  patriotic  services  and  success.  The 


52  HISTORY  OF  PERSONNEL 

telegraphic  reports  of  your  plan  are  uniformly  favorable. 
I  suggest  unofficially  that  you  come  here  for  a  day  soon 
and  tell  Gen.  McCain  about  it  and  go  over  plans  for  next 
series  of  camps  with  Capt.  Hayne  and  me.  A  comprehen- 
sive system  to  be  used  from  the  start  in  all  camps  should 
be  installed.  I  am  much  interested  personally  in  seeing 
this  worked  out  well. 

Very  truly  yours, 

GRENVILLE   CLARK, 
July  23.  Room  365. 

Upon  his  return  to  Washington  a  few  days  later,  Dr.  Scott 
found  Colonel  Johnston  and  Major  Clark  much  pleased  with 
the  reception  the  rating  scale  had  met  with  in  the  various 
training  camps.  At  their  suggestion  a  simplified  set  of  printed 
forms  was  devised  and  printed  for  use  in  the  second  series  of 
Officers'  Training  Camps,  which  was  to  begin  shortly. 
Assistant  Secretary  Keppel  was  also  gratified  by  the  success 
of  the  movement  and  introduced  Dr.  Scott  to  Secretary  Baker. 
Dr.  Scott  demonstrated  the  rating  scale  to  him  as  an  instance 
of  the  kind  of  service  which  the  psychologists  of  the  country 
could  render  in  the  mobilization  of  the  Army.  As  a  result 
of  this  conference  and  the  investigations  and  reports  which 
followed  it,  Secretary  Baker  soon  afterward  authorized  the 
organization  of  the  Committee  on  the  Classification  of  Per- 
sonnel in  the  Army. 


CHAPTER  5 

THE  ESTABLISHMENT   OF  THE  COMMITTEE 

ON  CLASSIFICATION  OF  PERSONNEL 

IN  THE  ARMY 

August  5,  1917,  is  remembered  by  personnel  officers  as 
a  significant  date,  because  it  marked  the  establishment  of  the 
Committee  on  Classification  of  Personnel  in  the  Army.  This 
was  the  culmination  of  a  chain  of  events  that  brought  to  the 
aid  of  the  War  Department  the  experience  of  men  who  in 
their  civil  pursuits  had  dealt  with  problems  of  personnel 
classification  and  placement. 

MOBILIZING  AMERICA'S  MEN  OF  SCIENCE 

From  the  moment  that  America's  participation  in  the  war 
against  Germany  was  decreed,  it  was  evident  that  the  Nation's 
resources  of  men,  brains,  energy,  money  and  materials  would 
all  be  at  the  disposal  of  her  military  chiefs.  Only  organi- 
zation was  lacking  to  harness  these  immense  resources  and 
drive  them  toward  the  common  goal. 

The  Council  of  National  Defense  proved  to  be  an  effective 
project  for  bringing  about  a  measure  of  the  needed  organiza- 
tion and  for  securing  the  cooperation  of  able  men  of  affairs. 
This  body  early  took  over  the  National  Research  Council, 
which  thereafter  served  as  its  medium  for  guiding  and  co- 
ordinating the  war  activities  of  American  men  of  science.  Uni- 
versity laboratories  of  chemistry,  physics,  biology  and  medi- 
cine were  turned  into  experimental  stations  for  the  develop- 
ment of  new  and  improved  methods  of  wireless  telephony, 
submarine  detection,  airplane  construction,  computation  of  the 
trajectory  of  projectiles,  poison  gas  manufacture,  gas  mask 
design,  transfusion  of  blood,  antisepsis,  and  the  like. 

53 


54  HISTORY  OF  PERSONNEL 

Activities  of  the  Psychologists.    One  of  several  main  com- 
mittees of  the  National  Research  Council  was  the  Psychology 
Committee,  which  worked  in  close  affiliation  with  committees 
of  the  American  Psychological  Association.    During  the  spring 
of  1917,  this  committee,  under  the  leadership  of  Dr.  R.  M. 
Yerkes  of  Harvard,  was  encouraging  a  number  of  researches 
pertinent  to  military  personnel  problems.    For  example,  Dr. 
Bentley,   at   Illinois,   was    assembling   and   digesting   all   the 
available   scientific   literature  in   English   and   foreign  langu- 
ages on  military  psychology.     Dr.  Raymond  Dodge  of  Wes- 
leyan,  was  busy  perfecting  an  apparatus  for  use  in  selecting 
and  training  naval  gun  pointers.     Drs.   Burtt  and   Miles   in 
Boston,  Dr.  Thorndike  in  New  York,  Dr.  Stratton  in  Berkeley, 
and  several  others  were  analyzing  the  qualifications   of  suc- 
cessful aviators  and  trying  out  tests  that  might  aid  in  predict- 
ing the  likelihood  that   a  candidate   would   make   good   as   a 
fighting   flier.      Dr.   Woodworth   of   Columbia,  was   attacking 
the   difficult   problem   of  tests    for  courage   and   self-mastery 
under  condition  of  strain  and  terror.     And  a  group  of  seven 
psychologists,   chosen   because   of   their   contributions    to   the 
technique    of    testing    intelligence,    were    working   night    and 
day   on  the  preparation   of   practicable   methods   of   measur- 
ing the  intelligence  of  recruits.     Skepticism  was  expressed  as 
to  whether  this  group  could  produce  methods  which  would 
really  be  workable  under  camp  conditions,  and  which  would 
yield  information  of  much  value  to  the  officers   responsible 
for  assigning  and  training  the  soldier  whose  native  intelligence 
and  mental  alertness  were  to  be  tested. 

"If  the  Kaiser  had  waited  five  years  longer,"  wrote  one 
eminent  psychologist,  temperamentally  cautious  and  conserva- 
tive, "we  might  have  been  in  a  position  to  furnish  the  Army 
with  workable  psychological  methods  of  proven  reliability." 
To  which  the  inevitable  rejoinder  was,  "Since  the  Kaiser  did 
not  wait,  it  is  up  to  the  psychologists  to  accomplish  in  five 
months  what  would  ordinarily  require  five  years  of  plodding 
research."  The  methods  and  information  recently  accumu- 


COMMITTEE  ON  CLASSIFICATION          55 

lated  by  psychologists  at  the  University  of  Illinois,  the  Car- 
negie Institute  of  Technology,  Stanford,  Columbia,  Harvard, 
and  elsewhere  were  all  pooled.  Improvements  were  suggested 
and  tried  out.  And  a  technique  of  both  group  and  individual 
examinations  of  intelligence  was  developed  which  stood  the 
test  and  demonstrated  its  worth  when  tried  out  in  July  on 
five  thousand  soldiers  and  sailors  in  four  different  training 
camps.  The  results  of  this  trial  convinced  the  psychologists 
that  they  at  last  had  methods  of  mental  testing  which  they 
could  heartily  endorse  for  Army  use.  The  National  Research 
Council  made  recommendations  which  Surgeon  General  W. 
C.  Gorgas  accepted,  that  the  new  methods  of  mental  testing 
be  adopted  as  a  part  of  the  routine  of  the  examination  of  re- 
cruits, and  that  Dr.  Yerkes  who  had  initiated  the  preparation 
and  trial  of  these  methods  be  commissioned  as  major  in  the 
Medical  Department,  to  direct  their  installation  and  adminis- 
tration in  the  Army. 

PLANS  FOR  THE  COMMITTEE 

Parallel  in  point  of  time  with  the  movement  to  apply  to 
Army  personnel  problems  the  best  available  methods  of 
mental  testing,  was  Dr.  Scott's  successful  campaign  for  the 
introduction  of  systematic  methods  of  judging  and  rating  the 
qualifications  of  officer  candidates.  (See  Chapter  4.)  The 
results  obtained  by  the  use  of  the  rating  scale  in  eight  of  the 
Reserve  Officers'  Training  Camps,  first  series,  convinced  the 
Adjutant  General  and  the  Secretary  of  War  that  other 
branches  of  the  Army  might  also  find  advantage  in  the 
adoption  of  similar  ways  of  disclosing  ability  and  talent. 
They  made  arrangements  for  Dr.  Scott  to  confer  with  the 
chiefs  of  all  the  War  Department  Bureaus  regarding  some 
of  their  personnel  problems,  and  to  prepare  a  plan  for  mak- 
ing available  for  them  in  meeting  those  problems  the  assist- 
ance of  a  group  of  specialists. 

Such  a  plan  was  drawn  up  on  July  28,  by  Dr.  Scott  with 
the  assistance  of  Dr.  W.  V.  Bingham,  Head  of  the  Division 


56  HISTORY  OF  PERSONNEL 

of  Applied  Psychology  at  the  Carnegie  Institute  of  Tech- 
nology, who  at  the  time  was  working  in  the  psychology  office 
of  the  National  Research  Council  on  the  projected  arrange- 
ments for  mental  testing  of  recruits.  The  plan  was  patterned 
roughly  after  the  type  of  organization  which  had  been  used 
by  the  Bureau  of  Salesmanship  Research  at  Pitsburgh,  with 
which  Scott  and  Bingham  were  associated  as  Director  and 
Executive  Secretary.  There  was  to  be  a  scientific  staff,  a 
nucleus  of  civilian  experts  who  would  constitute  a  research 
and  planning  group,  and  a  board  of  military  representa- 
tives of  the  various  bureaus  who  would  bring  to  this  group 
the  problems  to  be  attacked  and  who  would  also  see  to  the 
installation  in  their  respective  departments  of  such  methods 
as  were  developed.  In  the  course  of  a  few  days  which  seemed 
very  long  to  the  originators  of  the  plan,  impatient  to  see  it 
put  into  operation,  it  was  considered  by  the  War  College, 
by  the  Chiefs  of  the  Bureaus  and  by  The  Adjutant  General; 
and  met  with  their  endorsement,  and  on  August  5,  1917,  the 
Secretary  of  War  ordered  its  adoption  and  directed  that  a 
sum  of  $25,000  be  set  aside  to  cover  the  necessary  expenses 
of  the  work  for  six  months. 

The  descriptive  name  selected  by  Secretary  Baker  for  the 
new  organization  was  The  Committee  on  Classification  of 
Personnel  in  the  Army.  It  was  placed  under  the  jurisdiction 
of  The  Adjutant  General,  rather  than  in  the  War  College, 
or  in  the  Council  of  National  Defense,  because  it  was  felt 
that  its  work  should  be  done  in  most  direct  contact  with  the 
officers  who  were  immediately  responsible  for  the  personnel 
of  the  army.  Major  General  H.  P.  McCain  kept  it  under 
his  immediate  personal  supervision,  instead  of  incorporating 
it  in  one  of  the  already  established  divisions  of  the  Adjutant 
General's  Office,  because  its  duties  were  without  precedent 
and  also  because  he  had  the  vision  to  see  as  not  many  men 
did  at  the  time,  what  a  tremendously  far  reaching  and  diffi- 
cult task  was  being  undertaken. 


COMMITTEE  ON  CLASSIFICATION  57 

THE  COMMITTEE  ORGANIZES 

The  original  membership  of  the  Committee  consisted  of  ten 
university  psychologists  who  had  specialized  in  the  study 
of  human  traits  and  abilities,  and  two  employment  man- 
agers who  had  had  extensive  practical  experience  in  the 
selection  and  placement  of  workers.  The  Committee  began 
operations  at  once.  At  its  first  formal  meeting  in  the  Mun- 
sey  Building  offices  of  the  National  Research  Council,  August 
7th,  Drs.  Bingham,  Dodge,  Scott,  Thorndike  and  Yerkes 
were  present.  Dr.  Thorndike  was  elected  Chairman,  and  Dr. 
Scott,  Executive  Secretary.  Provisional  assignments  of  re- 
sponsibilities were  agreed  upon,  not  only  for  the  members 
present,  but  also  for  those  who  had  not  yet  reached  Wash- 
ington, including  J.  R.  Angell,  R.  C.  Clothier,  H.  L.  Gard- 
ner, J.  F.  Shepard,  E.  K.  Strong,  Jr.,  L.  M.  Terman,  and 
J.  B.  Watson. 

Two  weeks  later  a  new  position  was  created,  that  of  Di- 
rector; and  the  man  elected  to  fill  it  was  Dr.  Scott,  who 
more  than  any  one  else  had  been  responsible  for  initiating  the 
whole  enterprise.  Dr.  Thorndike  continued  in  the  capacity  of 
Chairman.  The  functions  of  these  two  men  became  analagous 
to  the  functions  of  the  President  or  General  Manager  of 
a  concern,  who  is  responsible  for  administration,  and  the 
Chairman  of  the  Board,  who  retains  the  reins  in  the  determin- 
ation of  general  policy.  The  position  of  Executive  Secretary 
made  vacant  by  Dr.  Scott's  acceptance  of  the  Directorship, 
was  filled  by  Dr.  Bingham  who  held  that  post  throughout  the 
period  of  the  Committee's  activities,  and  who  also,  as  second 
in  command  to  the  Director,  exercised  his  functions  in  his 
absence. 

Some  Early  Tasks.  Among  the  first  duties  assigned  to  the 
Committee  was  an  apparently  insignificant  one;  namely,  the 
revision,  for  the  Air  Division  of  the  Signal  Corps,  of  the 
application  blank  for  recording  the  personal  history  and 
qualifications  of  applicants  for  admission  to  the  aviation 


58  HISTORY  OF  PERSONNEL 

schools.  The  supply  of  the  long  four-page  folders  then  in 
use  was  exhausted,  and  the  printing  .of  a  fresh  edition  had 
been  ordered.  Although  the  old  blank  called  for  a  great  deal 
of  detailed  information  that  was  never  used,  and  failed  to 
provide  for  other  information  that  would  have  been  helpful 
in  deciding  on  the  prospective  officer's  qualifications,  the 
officers  in  charge  were  going  ahead  with  re-printing  .without 
attempt  at  revision  because  they  were  so  overwhelmed  with 
work  that  they  had  no  time  to  pause  to  make  improvements. 
So  as  soon  as  the  responsible  officer,  Major  Van  Horn,  learned 
of  the  establishment  of  the  Committee,  he  asked  that  it  under- 
take the  revision  of  the  application  blank. 

This  work  had  to  be  done  in  the  briefest  possible  time,  and 
so  all  available  members  of  the  committee  turned  to.  The 
results  of  their  combined  efforts  were  presented  to  the  Signal 
Corps  by  J.  B.  Watson,  and  crude  as  they  were,  were  so 
gratefully  received  that  Dr.  Watson  was  forthwith  asked  to 
accept  a  major's  commission  in  the  Signal  Corps,  and  to  as- 
sume responsibility  for  organizing  and  supervising  the  exam- 
ining boards  which  were  to  make  recommendations  of  candi- 
dates for  training  in  the  Air  Service.  Dr.  Thorndike,  an  in- 
defatiguable  and  prolific  worker,  also  cooperated  with  the 
Signal  Corps  in  improving  the  methods  of  selection  of  both 
officers  and  men. 

The  Quartermaster  Corps  asked  help  in  preparing  qualifi- 
cation record  plans  for  use  in  the  training  courses  soon  to  be 
opened  at  Camp  Joseph  E.  Johnston,  and  Mr.  Gardner  and 
Dr.  Shepard  were  detailed  to  adapt  the  principles  of  the  rat- 
ing scale  to  the  requirements  of  that  school  and  to  work  out  a 
convenient  system  for  recording  progress. 

Dr.  Dodge  was  assigned  to  cooperate  with  the  Coast  Artil- 
lery, and  made  a  visit  to  the  Coast  Defenses  at  Fort  Monroe, 
Va.,  to,  see  whether  there  was  any  need  there  for  methods  of 
selecting  gun  pointers  and  men  to  be  trained  for  the  fire- 
control  squad,  similar  to  those  he  had  been  developing  for 
the  Navy. 


COMMITTEE  ON  CLASSIFICATION          59 

Dr.  Angell,  who  had  some  familiarity  with  the  training  of 
Ordnance  officers,  was  asked  to  keep  in  touch  with  the  per- 
sonnel problems  of  that  Corps.  He  also  helped  Dr.  Scott 
and  other  members  of  the  Committee  in  adapting  the  officers' 
rating  scale  to  the  requirements  of  different  bureaus  and 
Corps. 

Dr.  Scott's  chief  task  aside  from  his  multifarious  executive 
duties  was  to  work  with  Major  Grenville  Clark  and  the  other 
officers  of  the  Adjutant  General's  Department  who  were  re- 
drafting plans  for  the  next  series  of  Reserve  Officrs'  Train- 
ing Camps. 

Dr.  Terman  gave  full  time  until  October  1,  as  the  special 
representative  of  the  Committee  to  assist  the  Medical  Depart- 
ment in  the  further  development  of  psychological  methods,  a 
task  in  which  he  had  some  help  from  other  members  of  the 
Committee,  particularly  Dr.  Thorndike  and  Dr.  Bingham. 

Intelligence  Testing  Separated  From  Personnel  Work.  The 
question  has  been  frequently  asked  why  this  intelligence 
testing  was  done  under  the  Surgeon  General  instead  of  being 
an  integral  part  of  the  personnel  system  as  administered  by 
the  Adjutant  General.  The  answer  is  not  a  logical  but  an 
historical  reason. 

When  the  project  for  establishing  the  Committee  on  Classi- 
fication of  Personnel  was  first  beginning  to  take  shape,  Dr. 
Yerkes  was  already  arranging  his  personal  affairs  prelim- 
inary to  accepting  a  commission  in  the  Medical  Department 
pursuant  to  the  recommendation  of  the  National  Research 
Council.  Dr.  Bingham  wired  urging  him  not  to  accept  the 
commission  because  of  the  prospect  of  what  appeared  to  be  a 
larger  opportunity  for  usefulness  on  the  proposed  Committee 
on  Classification  of  Personnel.  When  the  Committee  was 
finally  organized  Dr.  Yerkes  was  appointed  one  of  the  mem- 
bers; but  his  original  project  for  developing  the  psychological 
work  in  the  Surgeon  General's  Office  was  already  so  well  ad- 
vanced that  it  seemed  clearly  unwise  to  abandon  it,  and  to 
begin  anew  with  another  project  which  if  successful  would 


60 HISTORY  OF  PERSONNEL 

have  resulted  in  the  development  of  the  psychological  exam- 
ining and  its  incorporation  as  an  organic  part  of  the  camp 
personnel  work,  all  under  the  supervision  of  the  Adjutant 
General's  Department.  To  this  sequence  of  circumstances 
rather  than  to  any  well  considered  principle  of  organization, 
is  attributable  the  fact  that  personnel  classification,  including 
the  systematic  interviewing  and  trade-testing  of  the  recruits, 
was  administered  by  the  Adjutant  General's  Department, 
while  the  mental  testing  was  done  by  the  Medical  Depart- 
ment, and  only  the  results  of  the  tests  turned  over  to  the  per- 
sonnel adjutant's  office  for  recording  on  the  soldiers'  qualifi- 
cation cards.  Indeed,  the  question  of  a  merger  of  the  psycho- 
logical service  with  the  personnel  service  was  raised  repeat- 
edly during  the  fifteen  months  following  the  establishment 
of  the  Committee  on  Classification  of  Personnel,  such  a  sug- 
gestion originating  sometimes  from  the  office  of  the  Secre- 
tary of  War,  and  sometimes  from  the  Surgeon  General's 
Office,  or  from  the  War  Plans  Division,  or  from  officers  in 
the  camps.  But  the  answer  always  seemed  clear  that,  although 
the  services  logically  belonged  together,  it  was  unwise  under 
the  circumstances  to  swap  horses  in  the  middle  of  the  stream. 
Quarters  in  the  War  Building.  At  the  beginning  of  its 
work  the  committee  was  provided  by  the  National  Research 
Council  with  office  quarters  in  the  Munsey  Building  on  E 
Street,  near  Fourteenth,  which  at  that  time  housed  the  Coun- 
cil of  National  Defense.  But  it  was  evident  from  the  start 
that  the  best  work  could  be  done  only  if  the  Committee  were 
located  right  in  the  War  Building,  where  were  not  only  the 
offices  of  the  Secretary  of  War,  the  Chief  of  Staff,  and  the 
Adjutant  General,  but  also  the  chiefs  of  most  of  the  other 
War  Department  Bureaus.  So  the  Committee  counted  itself 
fortunate  when  on  August  24-  it  was  given  Room  526,  a  sort 
of  attic  room  with  one  small  window,  on  the  fifth  floor  of  the 
State,  War  and  Navy  Building.  Adjoining  it  was  Room  528, 
a  large  and  ornately  furnished  "cathedra.1,"  as  it  was  dubbed. 
As  the  work  of  the  Committee  grew,  the  space  assigned  to  it 


COMMITTEE  ON  CLASSIFICATION          61 

steadily  expanded  until  it  included  not  only  the  "cathedral" 
but  ten  other  rooms  as  well. 

The  record  of  this  expansion  in  the  scope  of  the  Com- 
mittee's responsibilities  is  found  in  later  chapters  of  this 
volume.  Only  one  step  in  that  development  will  here  be 
touched  upon,  but  that  is  a  step  of  utmost  moment. 

The  Beginnings  of  Expansion.  At  one  of  the  first  informal 
conferences  of  the  Committee  the  question  was  raised  as  to 
what  provision  was  being  made  to  render  available  for  the 
use  of  mustering  and  assignment  officers  in  the  National  Army 
cantonments  the  information  regarding  the  occupations  and 
qualifications  of  drafted  men  which  had  been  obtained  by  the 
local  draft  boards  by  means  of  the  questionnaires.  It  was 
thought  that  the  Committee  might  be  of  some  assistance  in 
perfecting  the  blanks  and  forms  which  would  be  utilized  for 
this  purpose  when,  three  or  four  weeks  later,  the  stream  of 
selective  service  men  would  begin  to  flow  from  all  parts  of 
the  nation  into  the  cantonments. 

Some  preliminary  inquiries  were  made  as  to  who  was 
preparing  those  plans.  It  was  found  that  the  Provost  Mar- 
shal General's  Office  had  taken  no  steps  in  that  direction 
because  it  was  charged  only  with  responsibility  for  examining 
and  selecting  the  recruits  and  delivering  them  to  the  Army. 
It  had  nothing  to  do  with  them  after  their  arrival  at  camp. 
The  information  on  the  questionnaires,  as  far  as  that  office 
was  concerned,  would  remain  with  the  local  boards.  Inquiries 
in  various  offices  of  the  War  Department  brought  the  assur- 
ance that  the  matter  was  being  provided  for,  but  no  one 
seemed  able  to  tell  just  who  had  it  in  hand;  so  that  soon  the 
apprehension  deepened  into  the  conviction  that  no  one  at  all 
had  been  definitely  charged  with  responsibility  for  classifying 
the  recruits  of  the  new  National  Army,  and  assigning  them 
according  to  their  abilities.  When  the  situation  was  brought 
to  the  attention  of  Major  General  McCain  he  directed  the 
Committee  to  undertake  this  work,  to  draw  up  plans  for  an 
adequate  soldier  classification  and  placement  system,  and  also 


62 HISTORY  OF  PERSONNEL 

to  prepare  to  put  those  plans  into  operation.  The  Committee 
empowered  Mr.  Clothier  to  supervise  the  preparation  of  these 
plans  and  arrangements. 

This  move  marked  the  early  transition  of  the  Committee 
from  its  original  status  as  an  advisory,  research  and  planning 
group,  to  an  organization  with  executive  and  supervisory 
responsibilities  as  well.  Here  was  to  be  its  largest  single 
task  and  its  greatest  opportunity  for  service.  If  this  duty 
could  be  fully  met,  the  wealth  of  skill  and  talent  and  special- 
ized experience  which  the  nation  was  about  to  pour  unstintedly 
into  the  ranks  of  the  expanded  Army,  would  not  be  wasted  or 
lost,  but  would  be  judiciously  used  where  the  most  pressing 
military  needs  required. 

The  establishment  of  the  Committee  on  Classification  of 
Personnel  in  the  Army  is  to  be  credited  to  five  men:  Secre- 
tary Newton  D.  Baker,  who  recognized  the  necessity  for  the 
utilization  of  the  best  ability  of  the  country  in  this  phase  of 
the  task  of  mobilization  and  training;  Major  General  H.  P. 
McCain,  who  foresaw  as  few  regular  army  officers  did,  how 
complex  and  how  vital  was  the  impending  personnel  problem; 
Major  Grenville  Clark,  who  was  deeply  concerned  about  the 
need  for  an  adequate  supply  of  able,  trained  officers,  and  who 
from  the  very  first  perceived  the  value  of  systematic  per- 
sonnel work  in  sifting  and  conserving  officer  material  in  the 
training  camps;  Dr.  Frederick  P.  Keppel,  who  as  Assistant 
to  the  Secretary  of  War,  in  early  July  first  brought  the  whole 
matter  to  the  attention  of  the  military  authorities  and  who  in 
countless  instances  since  that  day  has  proven  himself  a  power- 
ful supporter  of  the  work;  and  Dr.  Walter  Dill  Scott,  who 
first  conceived  the  idea,  and  whose  faith  in  the  cause,  coupled 
with  his  tremendous  energy  and  devotion,  enabled  him  to 
accomplish  for  the  Army  a  truly  distinguished  service. 


CHAPTER  6 

INTRODUCTION  OF  PERSONNEL  WORK  INTO 
THE  CAMPS 

ADOPTION  OF  SOLDIER'S  QUALIFICATION  CARD 

Shortly  after  the  Committee  on  Classification  of  Personnel 
was  organized,  it  was  realized  that  the  work  to  be  done  was 
so  diversified  that  particular  assignments  must  be  given  to  the 
individual  members  of  the  Committee.  Accordingly,  the  matter 
of  installing  personnel  work  in  the  National  Army  was 
assigned  to  Mr.  Clothier  and  Dr.  Angell. 

Several  days  were  given  over  to  the  preparation  of  a  classi- 
fication card  to  record  the  individual  abilities  and  qualifications 
of  the  men  in  the  national  army.  Finally,  on  August  23,  the 
form  was  sufficiently  completed  to  go  to  press.  The  form 
decided  upon  was  a  card,  comprising  questions  covering  all 
essential  information  about  the  man,  a  list  of  the  principal 
kinds  of  skill  needed  by  the  army,  so  far  as  it  was  possible  at 
that  early  date  to  determine  them,  and  a  set  of  numbers  along 
the  top  of  the  card  corresponding  to  numbers  indicating  the 
kinds  of  skill  below.  The  plan  provided  for  colored  celluloid 
tabs  to  be  affixed  on  the  proper  numbers  at  the  top  of  the 
cards  to  indicate  at  a  glance  the  cards  belonging  to  men  having 
certain  kinds  of  skill. 

On  the  afternoon  of  August  23,  1917,  The  Adjutant  Gen- 
eral, Major  General  H.  P.  McCain  approved  the  card  and  gave 
orders  to  go  ahead,  stipulating  only  that  the  card  should  be 
shown  to  the  officer  who  had  charge  of  all  forms,  in  order  to 
avoid  any  conflict  with  existing  forms. 

Due  to  certain  difficulties,  among  which  was  the  impossibility 
of  filing  the  card  due  to  the  tabbing  system  according  to  the 

63 


64  HISTORY  OF  PERSONNEL 

A.  G.  O.  system,  it  was  finally  decided  not  to  print  the  cards 
as  an  A.  G.  O.  form.  In  consequence,  the  form  was  given 
the  initials  of  the  Committee  on  Classification  of  Personnel  and 
became  Form  CCP-1,  the  first  of  the  many  forms  devised  and 
issued  by  the  Committee.  For  this  printing  a  supplementary 
appropriation  of  $26,000  was  approved.  (A  more  detailed 
discussion  of  the  development  of  this  card  is  presented  in 
Chapter  11). 

INTRODUCTION  INTO  NATIONAL  ARMY  CAMPS 

Early  Plans  at  Washington,  On  August  29th,  Dr.  Scott, 
Dr.  Bingham,  Major  Grenville  Clark  and  Mr.  Clothier 
went  to  the  War  College  to  see  whether  the  War  College 
had  devised  any  plans  for  assigning  men  in  the  canton- 
ments to  places  in  the  Army  for  which  they  were  specially 
fitted.  The  group  was  introduced  to  Colonel  P.  D.  Loch- 
ridge,  Director  of  the  War  College,  who  explained  that 
he  had  just  ordered  telegrams  issued  to  all  the  national  army 
and  national  guard  cantonments  ordering  them  to  give  atten- 
tion to  the  placement  of  men  according  to  their  kinds  of  skill. 
These  telegrams,  however,  failed  to  suggest  any  method  of 
accomplishing  this  result.  When  Dr.  Scott  explained  the 
Committee  plan  to  Colonel  Lochridge,  Colonel  Lochridge 
reacted  favorably  at  once  and  called  the  War  Department  on 
the  telephone  to  hold  the  telegrams  which  he  had  ordered  sent 
out. 

Colonel  Lochridge  requested  that  the  plan  be  applied  at 
once  to  both  national  army  and  national  guard  camps,  but  it 
was  recognized  that  by  attempting  too  much  the  group  might 
accomplish  too  little,  and  Dr.  Scott  explained,  therefore,  that 
for  the  present  the  Committee  would  restrict  its  efforts  to  the 
men  of  the  national  army.  Colonel  Lochridge's  telegram  was 
sent  to  the  Commanding  Generals  of  the  national  guard  can- 
tonments but  later  reports  showed  that  the  results  were  almost 
negligible. 

It  was  felt  that  the  \vork  would  not  properly  function  in 


INTRODUCTION  OF  PERSONNEL  65 

the  camps  unless  it  were  supervised  by  an  officer  with  at  least 
the  rank  of  captain.  It  quickly  became  apparent  that  the 
camp  work  would  require  a  man  of  intelligence  and  ability, 
corresponding  in  a  crude  way  to  the  employment  manager  of 
an  industrial  concern  and  that  in  no  manner  could  this  work  be 
regarded  as  statistical  or  clerical  in  nature  if  it  was  really  to 
prove  of  value  to  the  army. 

On  August  25,  1917,  therefore,  Major  (later  Col.)  Jens 
Bugge  sent  the  following  telegram  to  each  of  the  national  army 
cantonments : 

"Division  Commander: 

You  will  detail  for  work  in  assignment  of  drafted  men 
in  your  cantonment  a  Captain  of  Reserve  Officers'  Corps 
to  cooperate  with  Committee  on  Classification  of  Person- 
nel in  Army.  Should  be  trained  business  man,  an  em- 
ployer of  labor  if  possible  and  familiar  with  advanced 
employment  practices.  Order  him  to  report  to  Scott 
Saturday  morning,  Sept.  1,  9  A.  M.,  Room  526,  War 
Building,  Washington. 

McCAIN." 

Because  of  the  shortness  of  the  time  remaining  before  the 
first  drafted  men  would  reach  camp,  it  was  felt  desirable  to 
undertake  the  work  at  first  in  only  four  cantonments,  thereby 
in  actual  practice  determining  the  best  ways  and  means  of 
getting  the  maximum  results.  On  this  basis  the  Committee 
would  be  prepared,  when  the  second  draft  entered  camp,  to 
install  a  system  tested  in  actual  experience.  Owing  to  the 
postponment  of  the  draft  by  ten  days,  however,  Major  Bugge's 
advice  to  go  ahead  at  once  in  all  sixteen  cantonments,  pre- 
vailed. He  explained  that  this  was  not  the  time  to  take  half- 
way steps ;  that  the  nation  was  at  war  and  that  it  was  better 
to  go  ahead  on  a  big  scale  and  make  mistakes  than  to  go 
ahead  on  a  small  scale  and  make  none. 

Plans  for  Supervision  of  Work.  From  the  very  outset 
the  Committee  recognized  the  need  for  supervision  of  the 
work  in  the  camps.  It  was  felt  that  owing  to  the  geographi- 


66  HISTORY  OF  PERSONNEL 

cal  distance  between  the  camps,  an  artificial  means  of  co- 
ordinating the  work  in  all  would  be  necessary,  if  individ- 
ual practices  were  not  to  spring  up  in  each  which  would 
tend  to  nullify  the  effectiveness  of  the  whole  organization. 
Furthermore,  the  Committee  appreciated  the  need  of  in- 
structing the  personnel  officers  in  their  duties  and  of  educat- 
ing them  to  a  full  conception  of  the  possibilities  and  the 
value  of  their  work.  It  was  decided,  therefore,  that  for 
this  supervisory  work  the  Committee  should  procure  from 
industrial  concerns,  which  had  installed  advanced  employment 
methods  in  their  own  organizations,  employment  managers  of 
training  and  experience. 

The  appropriation  for  the  salaries  and  expenses  of  these 
employment  managers  had  not  yet  been  approved,  but  so  great 
was  the  confidence  of  the  Committee  in  the  necessity  for  the 
help  of  these  men  and  in  the  inevitable  approval  of  the  work 
that  Mr.  Gardner  and  Mr.  Clothier  started  out  on  the  morn- 
ing of  August  30,  1917  to  secure  these  sixteen  men.  Mr. 
Gardner  went  to  New  England  and  through  New  York  state 
to  Buffalo;  Mr.  Clothier  went  to  Philadelphia,  Newark,  New 
York  and  Chicago.  Dr.  Scott  operated  from  Washington  by 
telegraph.  This  campaign  for  men  took  about  a  week  and  re- 
sulted in  enlisting  the  service  of  Philip  Brasher,  Chile  Explor- 
ation Company,  New  York  City;  William  Clark,  International 
Harvester  Company,  Chicago;  N.  F.  Dougherty,  Pennsylvania 
Railroad  Company,  Philadelphia;  J.  W.  Dietz,  Western  Elec- 
tric Company,  Chicago;  C.  R.  Dooley,  Westinghouse  Electric 
and  Manufacturing  Company,  East  Pittsburgh,  Pa.;  R.  B. 
King,  Hyatt  Roller  Bearing  Company,  Newark;  W.  S.  Mac- 
Arthur,  Armour  and  Company,  Chicago;  W.  A.  Sawyer, 
American  Pulley  Company,  Philadelphia;  J.  E.  Sheridan, 
Crane  Company,  Chicago;  A.  J.  Turner,  Washington  Water 
Power  Company,  Spokane,  Wash. ;  Kendall  Weisiger,  Southern 
Bell  Telephone  and  Telegraph  Company,  Atlanta,  Ga. ;  C.  J. 
Whipple,  Hibbard,  Spencer,  Bartlett  and  Company,  Chicago; 
M.  M.  Jones,  Thomas  A.  Edison  Inc.,  Orange,  N.  J.;  Philip 


INTRODUCTION  OF  PERSONNEL  67 

J.   Reilly,  Dennison  Manufacturing  Company,  Framingham, 
Mass. ;  R.  H.  Puffer,  Larkin  Company,  Buffalo. 

Original  Orders  to  Camp  Commanders.  In  order  that 
the  Division  Commanders  might  be  acquainted  with  the 
Army's  plans  for  the  proper  placement  of  personnel  and 
the  purpose  of  the  telegram  of  August  25,  the  following 
telegram  was  issued  on  August  29 : 

"Commanding  General: 

A  careful  study  will  be  made  of  the  abilities  of  the  drafted 
men  of  your  command  with  a  view  to  ascertaining  their  special 
qualifications  for  duty  in  the  different  branches  of  the  service. 
To  assist  you  in  doing  this  work  in  a  systematic  manner  a  plan 
has  been  formulated  by  the  Committee  on  Classification  of 
Personnel  in  the  Army  recently  appointed  by  Secretary  of 
War.  Plan  provides  for  securing  data  concerning  the  educa- 
tion, occupation  and  special  qualifications  of  each  drafted  man. 
There  will  be  a  simple  qualification  record  for  each  man,  these 
to  be  assembled  and  analyzed  in  a  Personnel  Office  in  each 
cantonment  under  charge  of  a  Personnel  Officer  selected  by 
Division  Commander.  Forms,  filing  cases  and  expert  civilian 
assistance  will  be  furnished  by  the  Committee  on  Classifica- 
tion of  Personnel.  Further  details  will  be  furnished  shortly. 

The  meeting  of  Personnel  Officers  which  your  Division  Per- 
sonnel Officer  has  been  directed  to  attend  in  Washington, 
September  8th  is  in  connection  with  this  work. 

McCAIN." 

Supplementing  this  telegram  the  following  letter  was  issued 
on  September  5,  in  which  the  relationship  that  was  to  exist 
between  the  Committee  and  the  Army  was  emphasized. 

"From:     The  Adjutant  General. 

To:         Division  Commander  at 

Subject:  Classification  of  Personnel  in  the  Cantonment. 

"1.  The  classification  of  men  in  the  cantonment  as  to  their 
occupational  qualifications  will  be  made  jointly  by  a  civilian 
expert  supplied  by  the  Committee  on  Classification  of  Per- 
sonnel in  the  Army  and  the  Personnel  Officer  already  ap- 
pointed by  you.  Major  Jones  of  the  Statistical  Department, 
The  Adjutant  General's  Office,  Washington,  D.  C.,  is  direct- 
ing the  three  statistical  officers  in  your  camp  to  cooperate  in 
so  far  as  they  are  not  otherwise  occupied. 


68  HISTORY  OF  PERSONNEL 

"2.  The  relationship  between  the  expert  supplied  by  the 
Committee  on  Classification  of  Personnel  in  the  Army  and  the 
Personnel  Officer  is  that  between  a  manager  in  a  concern  and 
a  certified  public  accountant  temporarily  called  in  by  the  firm 
to  install  a  new  system  of  accounting.  The  Personnel  Officer 
will  report  to  the  Division  Adjutant  concerning  all  matters 
dealing  with  the  classification  of  men  in  the  cantonment.  But 
in  all  matters  dealing  with  the  installation  of  the  system  the 
expert  supplied  by  the  Committee  will  have  full  charge.  As 
soon  as  the  Committee  feels  that  the  system  has  been  thor- 
oughly established  the  expert  will  be  withdrawn  and  the  Per- 
sonnel Officer  will  be  left  in  full  charge.  It  is  anticipated 
that  the  services  of  the  expert  will  be  needed  for  ten  weeks 
and  they  have  volunteered  their  services  on  that  understanding. 

"3.  The  furniture  for  the  Personnel  Office  has  already  been 
ordered  by  the  Quartermaster  General's  Office  and  shipped 
in  care  of  the  Personnel  Officer. 

"<t.  The  following  items  should  be  provided: 

(1)  Approximately  300  square  feet  of  floor  space  for  the 

Personnel  Office  at  Division  Headquarters. 

(2)  Telephone. 

(3)  Quarters  in  the  camp. 

(4)  Suitable  place  in  camp  for  meals  for  which  he  will 

pay- 

(5)  Clerical  assistance  as  required,  to  be  performed  by 

men  detailed  from  the  command. 

(Signed) 
JENS  BUGGE,  Adjutant  General." 

Conferences  on  Field  Work.  On  September  8,  the  first  con- 
ference of  field  men,  personnel  officers  and  civilians,  was  held 
in  Room  526,  State,  War  and  Navy  Building.  Besides  the 
civilians  named  above  the  following  officers  attended: 

Captain  Lawrence  Ewing  of  Camp  D  evens, 
Captain  Frank  Knox  of  Camp  Dix, 
Captain  Richard  L.  Boyd  of  Camp  Gordon, 
Captain  Frank  W.   Ehrlich  of  Camp  Jackson, 
Captain  J.  Straughan  Downing  of  Camp  Lee. 
Captain  W.  C.  Lawrence  of  Camp  Sherman, 
Captain  C.  A.  Edwardsen  of  Camp  Taylor, 
Captain  Francis  W.  Perry  of  Camp  Upton. 


INTRODUCTION  OF  PERSONNEL  69 

In  addition,  General  McCain,  Major  (now  Colonel)  Jens 
Bugge,  Major  P.  T.  Hayne,  Major  (now  Lt.  Col.)  Grenville 
Clark,  Major  (now  Lt.  Col.)  J.  O.  Walsh  and  several  other 
officers,  together  with  all  members  of  the  Committee,  were 
present. 

General  McCain  made  the  opening  address  as  follows : 

"I  hardly  know  what  to  say  about  the  work  of  this 
Committee.  This  is  all  new,  and,  from  my  viewpoint,  a 
most  important  innovation.  We  can  never  expect  to  get 
the  maximum  service  out  of  any  army  unless  we  have  each 
man  placed  where  he  can  serve  best.  Hence  it  is  highly 
important  that  we  should  know  what  every  man  is  fitted 
to  do.  It  is  useless  to  make  a  chemist  a  teamster,  or  put 
a  teamster  to  nursing.  If  we  can  get  every  man  at  his 
proper  job  we  can  all  work  in  unison  and  get  somewhere. 
It  is  a  big  contract  you  have,  and  it  is  up  to  you!  The 
collection  of  the  information  about  the  men  is  not  so  diffi- 
cult, but  the  trouble  is  going  to  be  in  arranging  it  and 
putting  it  where  it  will  be  readily  accessible  to  the  Com- 
manding Generals.  A  Commanding  Officer  must  have  a 
certain  piece  of  information  at  a  moment's  notice.  You 
must  be  in  a  position  to  give  this  information  right  off 
the  bat! 

"Also  we  are  now  wholly  ignorant  of  the  capabilities 
of  all  officers  in  the  National  Guard.  If  your  committee 
can  help  us  with  a  system  for  the  promotion  of  officers 
we  will  be  very  grateful  indeed." 

On  the  following  day,  General  McCain  spoke  again  for  a 
few  minutes,  as  follows : 

"We  here  in  the  War  Department  want  to  know  where 
we  are  lacking  and  where  we  have  made  good.  If  the 
data  concerning  the  men  in  the  army  can  be  sent  here 
where  it  is  accessible  to  the  Secretary  of  War  and  to  the 
Chief  of  Staff,  they  can  select  the  material  best  fitted  for 
different  expeditions.  Then  in  each  one  of  the  camps  you 
must  have  this  information  where  the  Division  Adjutant 
and  the  Camp  Commander  will  have  it  at  hand.  Your 
job  after  that  is  to  find  some  system  of  selection  and 
some  basis  for  promotion. 

If  we  can  have  the  information  on  these  cards  in  the 


70  HISTORY  OF  PERSONNEL 

War  Department  I  think  we  can  accomplish  a  whole  lot. 
I  hope  you  gentlemen  will  adopt  a  scheme  that  is  sim- 
.  plicity  itself. 

You  will  never  find  a  perfect  scheme  until  you  put 
whatever  scheme  you  have  into  operation.  You  are  going 
to  make  mistakes,  but  go  right  ahead!  It  is  not  difficult 
to  explain  why  you  have  made  a  mistake,  but  it  is  difficult 
to  explain  why  you  have  not  done  anything." 

Major  Bugge  was  another  officer  who  saw  the  problem  "in 
the  big."  He  spoke  as  follows : 

"I  have  been  here  about  two  months,  and  one  thing  I 
have  noticed  is  that  we  don't  do  things  on  a  large  enough 
scale.  We  have  had  an  army  of  25,000  for  so  long  that 
we  still  want  to  apply  the  same  methods  to  an  army  of 
10  or  15  times  as  large.  The  Committee  said  at  first, 
'We  are  going  to  try  our  method  on  four  camps.'  The 
trouble  with  a  plan  like  that  is  that  the  four  camps  are 
doing  one  thing  and  the  others  are  doing  something  else, 
so  that  there  is  no  basis  of  comparison.  It  is  just  lost 
time. 

"The  work  which  this  Committee  is  doing  will  prove 
invaluable.  It  will  help  us  to  put  round  pegs  into  round 
holes.  The  only  suggestion  I  have  is  that  when  you  get 
this  information  you  should  try  as  far  as  possible  to  get 
an  estimate  of  what  the  Division  Commander  needs.  It 
would  be  a  good  plan  to  have  everything  over  and  above 
what  the  Division  Commander  needs  put  in  some  sort  of 
reservoir  where  they  will  be  on  tap.  Some  Division  Com- 
manders want  to  hold  on  to  everything  they  can  get  hold 
of.  You  should  fix  it  so  that  you  don't  have  to  quarrel 
with  the  Division  Commander  when  you  want  a  man.  I 
think  you  will  find  that  General  McCain  will  back  you 
up  in  any  practical  scheme  that  you  propose." 

Major  Grenville  Clark,  the  representative  of  The  Adjutant 
General  with  the  Committee  outlined  the  work  to  be  done  in 
the  following  words: 

"I  would  like  to  call  attention  to  the  fact  that,  as  I 
see  it,  there  are  three  separate  problems  before  this 
Committee : 


INTRODUCTION  OF  PERSONNEL 


71 


1.  Assigning  the  men. 

a.  Into  their  proper  places  in  the  Division. 

b.  Getting  the  data  so  that  men  can  be  taken  out  of 

the  Division  if  necessary  for  special  service. 

2.  Keeping  track  of  the  men  after  the   assignments 
have  been  made. 

3.  Working  out  a  selection  system  for  the  promotion 
of  officers." 

Mr.  Clothier  and  Dr.  Strong  had  charge  of  the  conference 
which  proceeded  very  satisfactorily.  At  the  outset  the  officers 
were  inclined  to  believe  they  were  being  side-tracked  and 
would  lose  their  chance  of  promotion.  During  the  course  of 
the  morning,  however,  one  after  another  began  to  see  that  the 
work  meant  a  great  future  rather  than  a  handicap.  The 
conference  continued  with  a  luncheon  at  the  University  Club 
at  noon  and  then  in  the  office  throughout  the  afternoon  and 
evening  and  the  following  morning.  At  the  conclusion  of  the 
conference  the  officers  returned  to  their  camps  with  the  civil- 
ians who  had  been  assigned  to  those  camps. 

The  assignments  were  as  follows: 

CAMP  OFFICER 

Devens        Capt.  Lawrence  Ewing 
Dix  Frank  Knox 

Gordon  Richard  L.  Boyd 

Jackson  Frank  W.  Ehrlich 

Lee  J.  S.  Downing 

Meade  T.  S.  Dunn 

Sherman  W.  C.  Lawrence 

Taylor  "     C.  A.  Edwardsen 

Upton  F.  W.  Perry 

Following  the  conference  at  Washington,  one  of  the  so- 
called  Civilian  Experts  raised  a  query  as  to  whether  the 
position  could  not  be  adequately  filled  by  a  clerk,  because 
it  seemed  to  him  that  the  work  was  largely  that  adapted  to  a 
high  grade  clerk.  He  was  assured  that  a  clerk  was  all  that 
was  necessary,  allowed  him  to  return  to  his  home,  where 
he  still  is.  All  the  other  civilians,  both  at  Washington  and 
St.  Louis,  looked  upon  the  task  as  one  equal  to  any  that  ever 


CIVILIAN          .; 
Philip  J.  Reilly 
William  Alfred  Sawyer 
Kendall  Weisiger 
Philip  Brasher 
N.  F.  Dougherty 
R.  B.  King 
C.  R.  Dooley 
E.  K.  Strong,  Jr. 
M.  M.  Jones 


72 HISTORY  OF  PERSONNEL 

befell  a  man  either  in  civil  or  military  life.  Alost  of  the  men 
regarded  it  as  a  wonderful  opportunity  to  be  able  to  utilize 
all  of  their  energy  in  the  interest  of  the  Army.  The  work  was 
undertaken  with  enthusiasm  and  as  a  task  worthy  of  unselfish 
service.  The  men  all  realized  when  they  left  Washington 
and  St.  Louis,  that  they  were  going  to  the  hardest  job  that 
they  had  ever  had,  that  they  would  be  unable  to  keep  any 
regular  hours,  and  enjoy  the  conveniences  of  home  life,  but 
they  felt  it  was  the  greatest  opportunity  they  had  ever 
en  j  oyed. 

Conference  at  St.  Louis.  On  September  9,  Mr.  Clothier  and 
Dr.  Strong  left  for  St.  Louis  in  order  to  hold  a  similar  con- 
ference for  the  officers  superintending  the  work  in  the  western 
cantonments.  The  conference  was  held  at  Planters  Hotel. 
On  the  evening  of  the  10th  there  was  a  small  informal  dinner 
with  the  civilians  in  order  to  permit  preliminary  discussion; 
those  present  were  Whipple,  Dietz,  MacArthur,  Puffer,  Clark, 
Strong,  and  Clothier.  The  work  was  outlined  and  the  follow- 
ing morning  the  officers  presented  themselves:  Capt.  Bruce  R. 
Honeyman  of  Camp  Dodge,  Capt.  J.  C.  Strutz  of  Camp 
Funston,  Capt.  Lawrence  H.  Whiting  of  Camp  Grant,  Capt. 
James  T.  Dortch  of  Camp  Pike,  Capt.  J.  Perry  Moore  of 
Camp  Travis,  and  Capt.  D.  J.  Coman  of  Camp  Lewis. 

The  program  was  similar  to  that  of  the  conference  in 
Washington  and  resulted  in  the  officers  obtaining  a  good  con- 
ception of  and  degree  of  enthusiasm  for  the  work.  After  the 
conference  the  civilians  accompanied  their  officers  to  the  can- 
tonments in  order  to  inaugurate  and  develop  the  work.  The 
assignments  were  as  follows: 

CAMP  OFFICER  CIVILIAN 

Grant  Capt.  L.  H.  Whiting  R.  H.  Puffer 

Pike  James  T.  Dortch  J.  Walter  Dietz 

Dodge  Bruce  R.  Honeyman  C.  J.  Whipple 

Funston  J.  O.  Strutz  J.  E.  Sheridan 

Travis  J.  perry  Moore  William  Clark 

Lewis  D.  J.  Coman  Arthur  J.  Turner 


INTRODUCTION  OF  PERSONNEL      '       73 

PERSONNEL  WORK  IN  NATIONAL  ARMY 
CANTONMENTS 

In  those  early  days  the  work  was  still  simple  in  nature  and 
relatively  crude  when  compared  with  the  refinements  later 
introduced.  The  original  plan  provided  for  the  interviewing 
of  the  men  by  their  company  commanders,  but  this  was  found 
to  be  impracticable  for  two  reasons.  First,  it  was  impossible 
to  properly  train  the  company  commander  in  analysis  and  in- 
terview. He  already  was  charged  with  a  thousand  and  one 
duties  and  had  not  the  time  nor  the  inclination  to  be  careful 
and  penetrating  in  this  work.  Subsequently,  it  became  appar- 
ent that  there  was  a  tendency  on  the  part  of  those  officers,  who 
wished  to  do  so,  to  disguise  the  special  abilities  of  high  grade 
men  in  order  to  forestall  and  prevent  the  drawing  of  those 
men  out  of  their  companies  and  the  assigning  of  them  to  posi- 
tions elsewhere,  where  their  specific  abilities  could  be  used. 

Later,  therefore,  it  was  found  far  more  effective  to  provide 
for  the  interviewing  and  the  filling  out  of  the  soldiers'  qualifi- 
cation cards  by  officers  and  enlisted  men  of  superior  intelli- 
gence especially  trained  for  this  work.  This  permitted  an  in- 
creasing degree  of  intelligence  and  accuracy  in  preparing  the 
qualification  cards  and  prevented  the  possibility  of  intentional 
concealment  on  the  part  of  the  company  commanders. 

Discussion  as  to  where  the  cards  should  be  kept — at  Com- 
pany, Regimental  or  Division  Headquarters — finally  resulted 
in  the  decision  to  keep  all  cards  at  Division  Headquarters, 
whence  intra-unit  transfers  could  be  made,  and  to  permit 
company  commanders  to  retain  duplicates  of  cards  of  their 
men  for  assistance  in  assigning  men  in  their  companies.  For 
this  purpose  a  buff  qualification  card  was  prepared  which 
was  practically  identical  with  the  white  qualification  card. 
The  use  of  these  buff  cards  was  not  made  mandatory,  but 
optional  with  the  company  commanders. 

It  soon  became  apparent  that  the  officers  themselves  had  no 
proper  guidance  or  knowledge  to  assist  them  in  assigning 


74      •  HISTORY  OF  PERSONNEL 

their  men  effectively.  This  was  America's  first  great  scientific 
war  and  the  Tables  of  Organization  had  not  contemplated 
using  men  according  to  their  skill,  but  according  to  their 
physical  and  military  qualifications  only.  Yet  it  was  soon 
seen  that  in  a  scientific  war  of  this  kind  industrial  skill, 
which  cannot  be  made  overnight  in  a  training  camp,  was 
going  to  be  a  factor  that  must  be  reckoned  with  seriously. 

As  a  means  of  assisting  the  division  officers  in  assigning 
their  men  a  chart  was  prepared,  based  on  the  Tables  of  Orga- 
nization, which  was  intended  to  show  iri  a  crude  way  where 
men  of  certain  kinds  of  skill  should  be  placed.  This  was 
known  as  Chart  A  and  was  subsequently  amended  and  issued 
as  Chart  B,  showing  the  number  of  specialists  needed  in  each 
unit  in  the  division  on  a  war-strength  basis.  These  charts 
were  the  germ  of  the  Tables  of  Occupational  Needs  explained 
elsewhere  in  this  book. 

Several  weeks  afterwards  a  telegram  was  directed  to  the 
Commanding  Generals  of  the  various  camps  asking  their  judg- 
ment of  this  system.  The  results  were  generally  favorable 
and  in  many  cases  were  enthusiastic.  General  McCain  had, 
furthermore,  formed  his  own  opinion  of  the  value  of  this 
work  and  consequently  directed  that  the  Committee  should 
undertake  at  once  the  classification  of  the  men  in  the  National 
Guard  camps. 

EXTENSION   OF   SYSTEM 

National  Guard  Camps.  Letters  of  explanation  and  tele- 
grams were  therefore  issued  to  the  Commanding  Generals  at 
the  National  Guard  Camps  and  a  conference  similar  to  those 
held  with  the  National  Army  personnel  officers  was  called  in 
Washington,  on  October  27,  1917.  The  officers  present  were: 

Captain  C.  B.  Altemose  of  Camp  Hancock. 

Captain  D.  M.  Simons  of  Camp  McClellan, 

Captain  G.  S.  Tait  of  the  41st  Division  at  Camp  Mills, 

Captain  W.  H.  Kyle  of  Camp  Sevier, 

Captain  Royal  Mattice  of  Camp  Sheridan, 

Captain  E.  E.  Gauche  of  Camp  Wadsworth, 


INTRODUCTION  OF  PERSONNEL  75 

Lieutenant  Fred  A.  Feld  of  Camp  Wheeler. 

In  organizing  the  work  in  the  national  guard  camps  it  was 
felt  that  it  would  not  be  necessary  to  have  a  civilian  super- 
visor for  each  camp  owing  to  the  fact  that  the  work  was  now 
commenced  and  that  it  would  be  possible  to  train  the 
national  guard  personnel  officers  in  part  by  having  them  visit 
national  army  cantonments  where  the  work  was  already  func- 
tioning and  in  full  swing.  It  was  decided,  therefore,  to  have 
four  civilian  supervisors  instead  of  eight.  These  were 
Brasher,  Dougherty,  Sawyer  and  Weisiger. 

The  conference  was  uniformly  successful.  The  procedure 
was  the  same  as  in  the  conferences  with  the  national  army 
personnel  officers.  A  great  deal  of  encouragement  and  enthu- 
siasm resulted  from  General  McCain's  opening  remarks. 
Whereas,  at  the  conference  of  national  army  personnel  officers 
on  September  8,  General  McCain  had  expressed  himself  as 
believing  the  work  had  merit,  but  asking  to  have  it  proved  to 
him,  he  now  expressed  himself  as  convinced  of  its  merit  and 
believing  that  the  system  installed  by  the  Committee  was  one 
of  the  most  valuable  contributions  that  had  been  made  to  the 
Army  in  the  last  twenty  years. 

After  the  conference  the  personnel  officers  from  the  na- 
tional guard  camps  were  conducted  to  certain  of  the  national 
army  camps  where  the  system  was  in  full  operation.  In  this 
way  they  were  given  an  object  lesson  and  afforded  an  oppor- 
tunity to  see  the  machinery  moving.  This  method  of  coach- 
ing them  was  undoubtedly  very  effective. 

Following  the  conference  Mr.  Clothier  and  Dr.  Strong  left 
for  San  Antonio,  arriving  there  October  30.  As  at  St.  Louis, 
there  was  a  preliminary  dinner  meeting  the  evening  before 
the  conference,  which  was  attended  by  Dietz,  MacArthur, 
Puffer,  Clark,  Strong  and  Clothier. 

The  next  morning  the  conference  was  called  at  the  Hotel 
St.  Anthony.  The  officers  present  were: 

Captain  D.  E.  Beams  of  Camp  Beauregard, 
Captain  T.  R.  Crippen  of  Camp  Bowie, 


76  HISTORY  OF  PERSONNEL 

Captain  Smith  of  Camp  Cody, 

(who  was  later  replaced  by  Capt.  N.  W.  Larimore), 
Captain  W.  D.  Moreland  of  Camp  Doniphan, 
Captain  B.  J.  Kempter  of  Camp  Kearney, 
Captain  W.  C.  Grierson  of  Camp  Logan, 
Captain  E.  H.  Allen  of  Camp  MacArthur. 

Just  before  the  opening  of  the  meeting  a  telegram  was 
received  from  The  Adjutant  General  directing  that  full  em- 
phasis should  be  placed  upon  the  importance  of  this  work 
and  that  the  names  of  the  officers  who  were  undertaking  it 
should  be  telegraphed  to  Washington.  These  orders  were 
complied  with  and  were  very  effective  in  impressing  upon  the 
officers  the  value  of  the  work  and  of  the  opportunity  that  was 
presented  to  them.  Following  the  conference  the  officers  and 
civilians  left  for  a  three-day  apprenticeship  at  nearby  national 
army  camps  where  the  work  was  already  in  operation. 

Regular  Army  Divisions.  Orders  were  now  received  from 
General  McCain  to  proceed  with  the  classification  of  men  in 
all  branches  of  the  army  and  to  proceed  with  the  organization 
of  the  personnel  work  in  the  Regular  Army  units.  Accord- 
ingly the  Committee  proceeded  with  the  personnel  work  in  the 
3rd,  4th,  5th  and  6th  Regular  Army  divisions.  The  situation 
in  the  regular  army  divisions  was  different  from  that  in  the 
national  army  and  national  guard  units,  inasmuch  as  the 
regular  army  divisions  were  at  that  time  distributed  all  over 
the  United  States  in  units  sometimes  as  small  as  companies. 
Especial  stress  was  laid  upon  the  3rd  and  4th  divisions,  as 
they  were  bound  overseas  at  an  earlier  date  and  were  more 
concentrated  than  the  other  regular  army  divisions.  Both  of 
these  divisions  were  at  that  time  located  at  Camp  Greene, 
N.  C.,  and  to  Camp  Greene,  accordingly,  Mr.  MacArthur  was 
sent.  Subsequently  he  was  replaced  by  Mr.  Reilly. 

Coast  Defense  Stations.  About  the  first  of  January,  1918,  in- 
structions were  received  to  undertake  the  classification  of  men 
at  the  Coast  Defense  Stations,  of  which  there  were  twenty- 
seven  in  the  United  States  and  about  five  at  other  points,  such 


INTRODUCTION  OF  PERSONNEL  77 

as  at  the  Canal  Zone,  Phillipmes,  etc.  In  November,  cards  for 
officers  and  men  had  been  sent  to  Coast  Defense  Stations  with 
instructions  for  the  classification  of  the  personnel  at  such 
stations,  but  the  results  were  not  satisfactory — in  fact,  so 
unsatisfactory  that  about  February  1st,  a  telegram  was  issued 
to  the  Commanding  Officer  of  each  post  instructing  him 
to  hold  in  abeyance  the  classification  of  his  personnel  pending 
the  arrival  of  a  representative  of  this  Committeee.  This  condi- 
tion was  a  vivid  testimonial  to  the  value  of  the  system  of 
supervision  which  had  been  responsible  in  such  large  part  for 
the  success  of  the  work  in  the  national  army  and  national 
guard  cantonments.  Subsequently,  the  classification  of  Coast 
Defense  units  was  accomplished  under  a  system  of  supervi- 
sion identical  with  those  in  operation  in  the  national  army  and 
national  guard  cantonments. 

Conclusion.  The  above  account  covers  the  preliminary 
stages  in  establishing  personnel  work  in  the  army.  The  work 
steadily  progressed  from  this  point,  as  told  in  subsequent 
chapters,  until  it  was  an  integral  part  of  the  entire  Army  in 
this  country  and  abroad. 


CHAPTER  7 

• 

THE  PERIOD  OF  DEVELOPMENT 
FALL  AND  WINTER,   1917-18 

Simultaneously  with  the  introduction  of  the  personnel 
classification  system  into  the  National  Army  cantonments  and 
into  the  camps  of  the  National  Guard  and  Regular  Army  divi- 
sions, improvements  in  the  system  were  constantly  being 
developed  by  the  planning  group  in  Washington. 

It  was  during  this  period  that  the  Central  Personnel  Record 
Office  was  started  by  H.  L.  Gardner  and  rapidly  developed 
by  A.  C.  Robinson  III.,  to  maintain  a  continuous  inventory 
of  the  skilled  and  partly  skilled  men  in  the  camps.  Here, 
too,  were  received  from  the  Staff  Corps  personnel  officers  their 
requisitions  for  specialists,  to  be  inquired  into  by  Major 
Grenville  Clark  and  passed  on  to  the  Operations  Branch  of 
the  General  Staff  with  recommendations  as  to  priorities  and 
as  to  the  best  sources  of  supply. 

The  need  for  a  common  language  and  a  more  exact  termin- 
ology in  all  these  personnel  transactions  brought  about  the 
revision  by  E.  K.  Strong,  Jr.,  and  J.  J.  Swan  of  the  index  of 
occupations  and  the  initiation  by  Mr.  Swan  of  his  plans  for 
the  volume  of  Army  Trade  Specifications. 

The  pioneer  work  of  F.  T.  Fisher,  Max  Watson  and  T.  L. 
Kelley  on  the  development  of  trade  tests  led  on  November  1 
to  the  establishment  of  the  Trade  Test  Division,  under  Mark 
M.  Jones,  to  prepare  technical  aids  for  interviewers  and 
standardized  tests  of  trade  proficiency. 

A  significant  study  of  systems  of  receiving  and  handling 
men  in  the  camps  and  of  the  accompanying  army  paper  work 
— the  bane  of  company  commanders — was  begun  on  November 

78 


PERIOD  OF  DEVELOPMENT  79 

16  by  W.  R.  DeField,  whose  recommendations  eventually  led 
to  important  simplifications  of  procedure. 

J.  R.  Angell  prepared  a  plan  for  the  classification  of  all 
officers,  and  devoted  a  great  deal  of  time  to  the  study  of  pos- 
sible methods  of  systematic  rating  and  promotion  on  merit. 
He  helped  W.  D.  Scott  prepare  plans  for  the  selection  of 
officer  candidates  from  among  the  men  in  the  ranks.  The  use 
of  the  rating  scale  in  this  connection  was  introduced  in  all  the 
camps,  by  the  method  of  lectures  and  demonstrations,  during 
the  second  half  of  November. 

Psychological  Examining.  The  tentative  use  of  mental 
tests  in  four  of  the  National  Army  cantonments  during  the 
fall  months  had  abundantly  demonstrated  their  practicability 
and  their  possibilities  for  usefulness.  In  response  to  an 
inquiry  from  the  Surgeon  General  regarding  the  value  of  the 
test  data  in  classifying  and  assigning  recruits,  the  Committee 
voted  on  December  5  to  recommend  the  extension  of  the 
psychological  examining  to  all  cantonments.  Favorable  action 
was  taken  by  the  Surgeon  General  and  the  General  Staff;  and 
the  winter  and  early  spring  months  saw  not  only  an  extension 
of  the  field  of  the  psychological  examining,  but  an  increasing 
understanding  on  the  part  of  personnel  officers  and  psychol- 
ogists of  how  the  intelligence  scores  could  be  utilized^  in 
selecting  superior  recruits  for  special  assignment  or  training, 
and  in  distributing  available  talent  so  as  to  effect  a  well 
balanced  organization. 

Increasing  the  Supply  of  Skill.  It  was  early  recognized 
that  any  adequate  program  of  personnel  supply  must  reckon 
with  the  facilities  at  the  disposal  of  the  Army  for  training 
occupational  specialists.  Dr.  Kelley  called  special  attention 
to  this  matter  and  on  December  6  was  directed  to  make  a 
survey  of  staff  corps  facilities  for  training  trade  apprentices. 
His  illuminating  report  was  one  of  the  documents  that  helped 
Major  Clark  to  bring  forcibly  to  the  attention  of  the  Adju- 
tant General  and  the  General  Staff  the  need  for  vastly  greater 
facilities  for  the  training  of  technicians.  Other  agencies, 


80  HISTORY  OF  PERSONNEL 

including  the  Federal  Board  for  Vocational  Education  and  the 
Committee  on  Engineering  and  Education  of  the  Council  of 
National  Defense,  had  been  striving  toward  the  same  end. 
Among  the  data  which  these  agencies  found  useful  in  making 
their  point  that  the  facilities  of  the  technical  schools  of  the 
country  must  be  utilized,  was  a  first  rough  summary  prepared 
by  W.  V.  Bingham  and  L.  R.  Frazier  in  January,  1918,  to 
show  the  total  needs  of  the  Army  for  skilled  workers,  together 
with  the  visible  supply  and  the  resulting  surplus  or  shortage 
in  each  essential  army  trade. 

A  program  of  short  intensive  courses  for  selective  service 
men  specially  inducted  and  sent  to  trade  and  technical  schools, 
was  advocated* particularly  by  Col.  (later  Brig.-Gen.)  R.  I. 
Rees,  Major  (later  Lt.  Col.)  Clark,  and  Major  (later  Col.) 
J.  H.  Wigmore,  and  led  to  the  establishment  of  the  Committee 
on  Education  and  Special  Training  and,  later,  the  Students' 
Army  Training  Corps.  (See  Chapter  41.) 

Major  Clark  who  from  the  beginning  had  been  administra- 
tive officer  for  the  Committee  on  Classification  of  Personnel 
was  given  large  responsibilities  in  connection  with  the  new 
committee.  And  as  this  work  rapidly  expanded  it  became 
necessary  for  him  to  withdraw  more  and  more  from  the  per- 
sonnel organization. 

Shortly  after  the  opening  of  the  new  year,  the  War  Service 
Exchange  was  inaugurated  under  Winslow  Russell  and  J.  J. 
Coss,  with  the  co-operation  of  Major  (later  Lt.  Col.)  E.  N. 
Sanctuary,  to  enable  the  War  Department  more  fully  to  take 
advantage  of  the  numerous  civilian  proffers  of  service.  (See 
Chapter  39.) 

Personnel  Supervision.  Out  in  the  camps  many  hundreds 
of  officers  and  men  in  the  personnel  organizations  were  con- 
stantly working  out  simplifications  of  procedure  and  improve- 
ments of  technique  in  interviewing,  classifying,  assigning, 
recording  and  reporting.  Any  device  of  organization  or 
building  arrangements  or  routing  of  men  which  was  found  to 
effect  a  saving  of  time -and  money  and  labor,  or  to  increase 


PERIOD  OF  DEVELOPMENT  81 

the  accuracy  of  classification  and  placement,  was  wanted  in 
all  the  camps  and  not  merely  in  the  one  which  first  made  the 
discovery.  It  was  indispensable  that  these  live  camp  organ- 
izations be  kept  in  closest  touch  with  each  other  and  with 
Washington. 

It  was  to  meet  this  situation  that  the  plan  of  having  several 
traveling  personnel  supervisors  was  adopted.  A  selection  was 
made  from  among  the  civilian  employment  managers  and  per- 
sonnel experts  who  had  supervised  the  initial  installation  of 
the  personnel  classification  in  the  National  Army  cantonments 
and  the  National  Guard  camps.  About  the  first  of  January, 
1918,  Kendall  Weisiger  was  made  responsible  for  the  inspec- 
tion and  general  supervision  of  personnel  work  in  the  South- 
eastern region,  including  Camps  Gordon,  McClellan,  Sheridan, 
Hancock,  Wheeler,  Jackson,  Sevier  and  Wadsworth.  William 
H.  Clark,  who  had  introduced  the  work  into  Camps  Travis. 
Logan  and  Bowie,  extended  his  points  of  contact  to  the  other 
camps  in  Texas  and  the  adjoining  territory,  and  later  did  a 
great  deal  to  standardize  the  personnel  work  in  Texas  aviation 
camps  also.1  Similarly  A.  J.  Turner  became  responsible  for 
the  Far  West,  R.  H.  Puffer  for  the  Middle  West,  and  P.  J. 
Reilly  for  the  Northeastern  and  Central  Eastern  regions. 
W.  S.  Mac  Arthur  and  C.  J.  Whipple,  while  no  longer  giving 
full  time  to  the  War  Department,  were  called  upon  in 
emergencies  to  continue  this  work  of  inspection  and  super- 
vision. 

The  interchange  of  information  and  experience  between 
Washington  and  the  camps  was  further  facilitated  by 
frequent  trips  which  members  of  the  Committee  made  to  cen- 
ters where  the  work  seemed  to  be  progressing  with  exceptional 
smoothness  or  with  difficulty.  These  visits  often  enabled  them 
to  straighten  out  tangles  and  get  results  which  no  amount  of 
correspondence  could  have  accomplished.  Of  still  greater 
value  for  the  development  of  the  whole  movement  was  the 

1  The  sudden  death  of  Mr.  Clark,  which  occurred  In  February,  almost 
Immediately  after  the  cessation  of  his  duties,  is  mourned  by  every  one  who 
knew  of  his  splendid  service  to  the  Army  in  the  Southwest. 


82 HISTORY  OF  PERSONNEL 

i 

first-hand  information  regarding  actual  camp  problems  which 
they  brought  back  to  the  Washington  office. 

Continual  shifts  in  the  enlisted  personnel  of  the  division 
personnel  offices  were  reported.  Soldiers  were  temporarily 
detailed  to  help  the  personnel  officers,  but  were  not  perma- 
nently assigned  there  because  no  provision  for  such  assign- 
ments appeared  in  the  Tables  of  Organization  issued  in 
August.  Efforts  toward  a  more  stable  organization  led  at  last 
to  the  authorization  of  a  nucleus  of  permanently  assigned  per- 
sonnel officers  and  assistants.  At  the  same  time,  the  activities 
of  the  insurance  section,  the  statistical  section  and  the  per- 
sonnel section  of  the  division  adjutant's  office,  all  of  which 
were  closely  related,  were  consolidated  under  a  single  head. 
The  resulting  economies  of  organization  released  a  number  of 
competent  officers  and  men  for  other  duties. 

The  Personnel  Manual.  Dr.  Strong  became  the  recognized 
authority  on  details  of  the  classification  regulations  and  of 
actual  procedure  in  the  camps.  He  was  responsible  for  all 
changes  in  C.C.P.  forms.  He  was  also  charged  with  the  duty 
of  preparing  the  chapters  of  the  Personnel  Manual,  which 
crystallized  for  general  use  the  best  practices  of  all  the  camps. 
Into  this  volume  went  the  results  of  his  own  experience  in 
receiving,  classifying  and  assigning  men  at  Camp  Taylor  and 
elsewhere,  his  studies  of  all  the  pertinent  regulations,  orders 
and  reports,  and  his  summaries  of  the  concensus  of  opinion 
gleaned  from  personnel  officers  and  supervisors.  This  manual 
was  in  a  sense  a  development  of  two  earlier  documents.  One 
was  Mr.  DeField's  report  on  the  practice  developed  by 
Captain  F.  W.  Perry  for  receiving  men  at  Camp  Upton.  The 
other  was  a  guide  for  interviewers,  prepared  by  a  group  of 
junior  officers  while  serving  under  Mr.  Weisiger's  supervision 
as  a  "flying  squadron,"  to  go  from  camp  to  camp  in  his  ter- 
ritory wherever  the  classification  program  was  most  in  need 
of  help. 

Liaison  with  A.  E.  F.  Headquarters.  The  recommendation 
of  a  mission  to  France  to  extend  the  personnel  classification 


PERIOD  OF  DEVELOPMENT  83 

into  the  American  Expeditionary  Forces  is  contained  in  the 
minutes  of  the  Committee  meeting  of  October  13,  1917,  and 
reappears  on  December  6.  But  it  was  not  until  March  3  that 
R.  C.  Clothier  and  Major  L.  H.  Whiting  actually  sailed  from 
Hoboken  on  this  errand.  In  anticipation  of  such  a  move,  Mr. 
Reilly  had  been  called  from  his  duties  as  a  traveling  super- 
visor to  relieve  Mr.  Clothier  of  the  administration  of  the  field 
work. 

On  arrival  in  Europe,  Mr.  Clothier  sent  back  illuminating 
reports,  first  on  the  British  system  of  classifying  and  handling 
men  and  later  on  actual  conditions  as  he  found  them  among 
our  own  troops  in  the  replacement  camps,  the  training  areas, 
the  services  of  supply  and  the  zone  of  combat.  These  reports 
were  replete  with  suggestions  that  looked  toward  the  improve- 
ment of  the  personnel  system  in  America,  in  order  that  it 
might  function  more  effectively  in  France. 

The  Turning  Point.  The  month  of  March  witnessed  the 
culmination  of  several  phases  of  the  Committee's  efforts.  The 
first  edition  of  Mr.  Swan's  Trade  Specifications  and  Occupa- 
tional Index  of  Professions  and  Trades  in  the  Army  came 
from  the  press  on  the  twenty-first.  One  week  later  were 
issued  the  Tables  of  Occupational  Needs  of  an  Infantry  Divi- 
sion. Chapters  of  the  Manual  began  to  appear  and  were  im- 
mediately distributed. 

All  of  these  aids  were  most  welcome  in  the  camps  where 
the  recently  consolidated  personnel,  insurance  and  statistical 
organizations  were  now  functioning  smoothly.  They  were 
received  just  in  season  to  be  of  help  in  classifying  and  assign- 
ing the  April  draft  increment,  whose  arrival  in  the  camps 
marks  an  important  turning  point  in  the  history  of  the  army 
personnel  system. 

The  period  then  drawing  to  a  close  had  not  been  without 
its  troubles  and  anxieties.  Important  personnel  requisitions 
which  seemed  to  call  for  immediate  action  by  the  Central 
Office  sometimes  became  congested  and  were  long  delayed 
while  in  the  hands  of  the  Priorities  Committee,  or  were  mis- 


84  HISTORY  OF  PERSONNEL 

laid  among  the  desk  accumulations  of  an  overburdened  officer. 
The  Washington  and  New  York  job  printers  had  not  always 
been  able  to  get  out  the  revised  blanks  and  forms  as  fast  as 
the  recruits  arrived  at  the  camps.  The  division  personnel 
officers  had  long  pleaded  for  authorization  of  an  adequate 
office  force  of  enlisted  personnel,  and  had  repeatedly  received 
assurances  that  it  would  come  soon ;  but  it  was  actually  mid- 
winter before  the  wheels  of  departmental  routine  actually 
ground  out  the  authorization.  Supervisors  had  sometimes 
come  in  from  the  field  with  harrowing  tales  of  "atrocities," 
as  they  were  called,  blunders  in  Washington  and  in  the  camps 
that  had  resulted  in  gross  wastage  of  precious  personnel.  And 
in  nearly  every  division,  there  were  some  officers  who  had 
developed  a  hostility  to  the  whole  classification  plan  because 
they  saw  in  it  only  a  device  for  robbing  them  of  some  of  their 
best  men.  But  discouragements,  difficulties  and  delays,  no 
matter  how  exasperating,  had  not  permanently  impeded  the 
progress  of  an  organization  that  felt  itself  charged  with 
responsibility  for  one  of  the  essential  elements  in  the  program 
of  defeating  Germany. 


A  rapidly  mounting  flood  of  combat  troops  began  to  move 
toward  the  ports  of  embarkation,  following  the  departure  of 
the  Rainbow  Division  in  October,  November  and  December, 
the  Forty-first  in  January  and  Seventy-seventh  in  March; 
and  the  personnel  work  soon  took  on  new  aspects. 

The  first  problem  was  obviously  to  see  that  each  unit  before 
departure  had  its  full  quota  of  personnel,  with  all  the  essential 
specialists  distributed  in  proper  proportion.  Some  division 
commanders  insisted  on  a  careful  "balancing"  of  the  personnel 
in  the  regiments  and  other  units  of  their  commands,  so  that 
each  had  its  due  share  of  technical  skill,  intelligence,  and 
leadership  ability. 

The  checking  of  the  papers  of  all  the  men  before  embarka- 
tion presented  a  neat  new  problem  of  system.  General 


PERIOD  OF  DEVELOPMENT  85 

Pershing  cabled  a  request  that  with  every  soldier  should  come 
his  qualification  card.  It  was  imperative  to  see  also  that  the 
service  record,  the  insurance  and  allotment  form,  the  statis- 
tical blank,  three  "locator"  or  directory  cards  and  the  other 
necessary  papers  were  on  hand  for  every  soldier  that  stepped 
aboard  a  transport.  It  was  in  April  that  Major  (later  Lt. 
Col.)  Royal  Mattice  was  called  from  the  personnel  office  of 
Camp  Sheridan  to  supervise  the  organizations  at  the  ports  of 
embarkation  that  were  responsible  for  checking  up  this  inven- 
tory of  papers.  He  devised  convenient  simplifications  of 
procedure  and  also  gave  instructions  in  their  use  to  adjutants 
and  company  commanders  of  divisions  on  the  priority  list. 

The  instant  that  a  division  began  to  leave  its  cantonment 
for  a  pre-embarkation  camp,  the  vacated  quarters  were  made 
ready  for  new  occupants.  Every  camp  was  kept  filled  to 
capacity.  Larger  and  larger  draft  increments  were  called 
until  in  July  the  monthly  total  of  inductions  reached  401,147. 

A  knotty  problem  of  organization  arose  when  the  original 
division  personnel  organizations  went  abroad.  What  should 
be  the  relationship  of  the  depot  brigade  personnel  adjutant's 
office,  which  was  responsible  for  the  original  classification  and 
assignment  of  recruits,  to  the  personnel  adjutant  of  the  new 
division  and  to  the  camp  personnel  adjutant  who  was  respon- 
sible for  the  personnel  of  the  permanent  camp  organizations, 
such  as  the  base  hospital,  the  camp  quartermaster,  the  remount 
depot  and  camp  headquarters? 

Colonel  A.  M.  Ferguson,  who  from  this  time  on  was  the 
responsible  officer  in  immediate  charge  of  the  entire  personnel 
organization,  met  the  situation  by  building  up  strong  camp 
personnel  offices.  He  arranged  that  the  camp  personnel  adju- 
tant should  keep  the  records  not  only  of  all  the  soldiers  in 
the  permanent  camp  service  units,  but  also  of  the  recruits  from 
the  time  they  were  classified  in  the  depot  brigades  until  they 
were  definitely  assigned  and  transferred  into  the  divisional 
units.  He  further  strengthened  the  camp  personnel  offices  by 
seeing  to  it  that  able  captains  were  selected  to  head  them  and 


86  HISTORY  OF  PERSONNEL 

that  as  rapidly  as  they  proved  their  quality  they  received  due 
recognition  by  promotion  to  a  majority.  This  policy  was  pos- 
sible only  because  the  personnel  adjutants,  being  officers  of 
the  Adjutant  General's  Department,  were  selected  and  as- 
signed from  Washington  and  could  not  be  replaced  by  the 
camp  commanders  except  with  the  approval  of  The  Adjutant 
General. 

Training  New  Personnel  Officers.  It  was  foreseen  that 
there  would  be  a  dearth  of  qualified  personnel  officers.  To 
meet  this  situation,  the  policy  was  adopted  of  holding  brief 
schools  in  different  districts  for  the  training  of  officers  in 
personnel  work.  The  first  of  a  series  of  eleven  such  schools, 
organized  and  conducted  by  Dr.  Strong  and  Mr.  Weisiger,  was 
held  in  Washington,  April  25  to  May  4.  To  the  training 
and  inspiration  of  these  short  courses  of  specialized  instruction 
must  be  credited  a  notable  strengthening  of  the  accuracy  and 
effectiveness  of  the  personnel  classification.  Out  of  them  grew 
a  new  professional  spirit  and  a  deeper  loyalty  to  their  task 
on  the  part  of  personnel  officers. 

The  first  school  was  opened  with  an  address  by  Major- 
General  H.  P.  McCain,  The  Adjutant  General,  in  which  he 
impressed  upon  the  students  the  military  importance  of 
adequate  and  accurate  personnel  records. 

The  War  Department  was  fortunate  in  having  in  Washing- 
ton at  this  time  Major  General  R.  Hutchison,  C.B.,  D.S.O., 
Director  of  Organization  of  the  British  Army.  On  invitation 
by  The  Adjutant  General,  he  addressed  the  personnel  officers' 
school,  telling  very  convincingly  about  the  personnel  problems 
the  British  Army  had  faced,  and  describing  how,  under  stress 
of  bitter  experience,  the  British  War  Office  had  come  to  rec- 
ognize personnel  administration  as  absolutely  fundamental  in 
the  organization  of  their  army.  At  this  time,  and  later  in 
conference  with  high  officials  of  the  War  Department,  General 
Hutchison  took  occasion  to  advocate  a  strong  centralized 
control  of  all  personnel,  enlisted  and  commissioned,  and  in  so 


PERIOD  OF  DEVELOPMENT 87 

doing,  rendered  a  notable  service  to  the  development  of  the 
personnel  idea  in  the  American  Army. 

The  Reason  for  Depot  Brigades.  A  narrative  of  the  army 
personnel  organization  may  have  a  value  quite  apart  from  any 
mere  interest  in  historical  records  if  it  brings  into  relief  prob- 
lems of  policy,  of  organization,  of  method  and  of  personnel — 
problems  that  are  bound  to  arise  again  in  any  similar  national 
emergency. 

One  basic  question  of  policy  in  building  a  civilian  army 
which  found  a  clear  answer  in  American  experience  during 
the  Spring  of  1918,  concerns  the  need  for  the  maintenance  of 
ample  sources  for  the  prompt  supply  of  men  of  designated 
qualifications  to  the  organizations  needing  them. 

When  the  General  Staff  decided  upon  the  plans  for  mobili- 
zation and  training  of  the  National  Army  it  wisely  made  provi- 
sion for  large  reservoirs  of  recruits.  In  each  of  the  sixteen 
National  Army  cantonments,  in  addition  to  an  infantry  divi- 
sion of  about  twenty-seven  thousand  men,  there  was  to  be  a 
depot  brigade,  a  skeletonized  organization,  with  room  for 
fifteen  or  twenty  thousand  more  men.  This  theory  was  funda- 
mentally sound.  New  arrivals  fresh  from  civilian  pursuits 
might  first  enter  the  depot  brigade,  there  to  undergo  the 
rigors  of  physical  examination  and  inoculation,  have  their 
numerous  papers  completed,  and  receive  their  first  lessons  in 
soldiering.  Then  as  needed  they  would  be  distributed  to 
infantry,  artillery  or  staff  corps  units,  after  which  their  train- 
ing would  proceed  without  further  interruption  by  transfer. 
But  it  was  not  until  March,  1918,  that  this  project  of  main- 
taining a  reservoir  of  recruits  in  the  depot  brigades  began  to 
operate  in  the  manner  here  described.  Meanwhile  the  newly 
installed  personnel  system  had  very  nearly  suffered  wreck, 
through  having  to  do  what  it  was  never  devised  to  do;  and 
many  ambitious  and  hard-working  officers  of  the  line  had  seen 
their  half-trained  outfits  shattered  through  repeated  with- 
drawals of  their  ablest  men  for  transfer  to  other  units.  No 
wonder  those  officers,  eager  to  be  among  the  first  to  fight, 


88  HISTORY  OF  PERSONNEL 

were  discouraged  at  the  repeated  inroads  on  the  personnel  of 
their  commands;  and  no  wonder  they  developed  a  resentment 
against  the  personnel  officer  and  the  system  of  classification 
which  had  made  possible  the  carrying  out  of  the  War  Depart- 
ment orders  to  make  those  transfers. 

Perhaps  some  historian  of  the  future  will  assemble  all  the 
causes  which  contributed  to  bring  about  this  condition.  Certain 
it  is  that  many  of  the  National  Guard  divisions  fell  short  of 
the  anticipated  number  of  troops,  and  large  drafts  from  the 
National  Army  camps  were  taken  to  fill  the  gaps.  This  fact 
does  not  go  far  toward  explaining  the  difficulty,  however, 
since  some  at  least  of  the  division  commanders,  apparently 
with  an  eye  to  the  success  of  their  own  commands  rather 
than  of  the  Army  as  a  whole,  seized  the  opportunity  to  get 
rid  of  a  few  thousand  of  their  least  promising  men.  It  was 
rather  the  insatiable  demand  for  specialists  on  the  part  of  the 
staff  corps,  particularly  of  the  Engineers,  the  Quartermaster 
Corps  and  the  Aviation  Section  of  the  Signal  Corps,  that 
resulted  in  heavy  drafts  upon  the  enlisted  personnel  of  the 
divisions.  As  the  General  Staff  of  the  American  Expedition- 
ary Forces  in  France  perfected  its  plans,  it  continually  dis- 
covered pressing  need  for  additional  technical  units,  foresters, 
railway  operatives,  laundry  companies,  stevedores,  telegraph 
construction  men  and  the  like.  And  these  new  technical  units 
had  to  be  organized  and  transported  to  France  to  do  their 
work  before  the  fighting  troops  could  come  in  any  consider- 
able number.  The  rapid  procurement  of  the  skilled  men  for 
these  technical  organizations  threw  a  heavy  burden  on  the 
Operations  Division  of  the  General  Staff  in  Washington  and 
on  the  personnel  system  in  the  camps.  To  be  sure,  thousands 
of  these  specialists  were  secured  by  voluntary  enlistment 
directly  from  their  civilian  pursuits ;  but  many  thousands  more 
had  to  be  taken  from  the  National  Army  cantonments,  and 
from  the  National  Guard  divisions  too,  be  it  said.  Moreover, 
these  had  to  be  hand-picked  men,  most  of  them  skilled  trades- 
men of  more  than  average  intelligence  and  resourcefulness. 


PERIOD  OF  DEVELOPMENT  89 

And  since  a  man  who  has  the  capacity  to  become  a  foreman 
in  a  shop  is  also  the  man  who  can  be  developed  into  a  valu- 
able corporal  or  sergeant,  the  withdrawal  from  the  divisions 
of  a  large  number  of  trade  specialists  inevitably  cost  them 
heavily  in  non-commissioned  officer  material. 

Why  were  these  heavy  drafts  made  upon  the  divisions 
instead  of  upon  the  depot  brigades  alone?  Because  the  depot 
brigades  did  not  contain  the  required  specialists  in  sufficient 
number.  Some  of  them  contained  very  few  troops  of  any 
kind.  Why  were  there  not  a  larger  number  of  selective  ser- 
vice men  called,  to  keep  the  depot  brigade  reservoir  filled? 
Ask  those  officers  in  the  Quartermaster  Corps  who  in  the  late 
fall  of  1917  had  not  been  able  to  get  manufactured  and 
shipped  to  the  camps  a  sufficient  supply  of  overcoats. 

These  are  but  samples  of  the  multitudinous  complications 
that  beset  the  officers  in  charge  of  organization  during  the 
early  period.  It  was  a  glad  day  for  both  division  commanders 
and  camp  personnel  officers  when  in  the  early  spring  of  1918 
more  troops  began  to  be  available  for  filling  the  combat  divi- 
sions up  to  strength.  That  period  marked  a  transition  to  a 
new  era  in  the  history  of  army  personnel  classification.  The 
tide  of  requisitions  began  to  flow  the  other  way.  Henceforth 
when  men  were  once  assigned  to  divisional  units  they  could 
be  left  there  to  pursue  their  soldierly  training  undisturbed. 
Commanders  of  artillery  regiments  and  supply  trains  could 
ask  for  the  necessary  complement  of  mechanics  and  truck 
drivers  with  some  assurance  of  securing  what  they  specified, 
either  at  once  or  when  the  next  contingent  of  drafted  men  was 
classified.  These  officers  now  realized  that  the  personnel 
system  was  devised  to  build  an  army  instead  of  to  tear  one 
down. 

The  depot  brigade  became  a  huge  sieve.  The  small  fraction 
of  utterly  incompetent  and  feeble  minded  were  promptly 
returned  to  their  homes.  Non-English  speaking  recruits  and 
others  who  were  physically  or  mentally  not  quite  qualified  to 
begin  at  once  the  rigors  of  regular  infantry  drill,  were 


90  HISTORY  OF  PERSONNEL 

assigned  to  development  battalions  for  one  or  two  months  of 
specially  adapted  training  (see  Chapter  40).  Peculiarly  rare 
and  valuable  specialists  were  segregated  and  held  for  assign- 
ment from  Washington  (sec  Chapter  32).  As  a  result  of  this 
sifting  process  which  took  place  during  the  initial  two  weeks 
of  quarantine,  all  recruits  when  finally  assigned  out  of  this 
depot  brigade  reservoir  could  be  placed  in  the  organization 
where  they  would  permanently  find  their  best  usefulness. 

This  theory  of  the  depot  brigade  is  so  fundamentally  sound, 
and  it  worked  out  so  admirably  in  practice,  that  everyone 
regretted  keenly  that  the  capacity  of  these  reservoirs  was 
not  great  enough  to  handle  all  of  the  incoming  drafts.  Ap- 
proximately a  fourth  of  the  hundreds  of  thousands  of  men 
inducted  during  the  spring  and  summer  of  1918  were  brought 
into  the  Army  by  some  back  door  instead  of  through  the  gate- 
way of  the  regular  receiving  stations  in  the  depot  brigades. 
About  fifty  thousand  selective  service  men  a  month  were 
inducted  at  various  army  posts  where  only  the  most  meagre 
of  temporary  personnel  organizations  were  set  up  and  where 
the  quarters  were  so  limited  that  the  new  arrivals  had  to  be 
shipped  out  again  almost  immediately,  before  there  was  time 
for  any  adequate  classification.  Others,  selected  by  the  local 
boards,  were  sent  directly  to  vocational  schools  of  the  Com- 
mittee on  Education  and  Special  Training.  Still  other 
thousands  came  directly  into  staff  corps  camps  as  a  result  of 
special  induction  or  of  recruiting  campaigns.  The  critic  who 
chooses  to  cite  numerous  individual  instances  of  buried  talent 
or  misplaced  ability  must  not  charge  them  all  against  the  per- 
sonnel classification  system. 

Creating  New  Divisions.  As  the  original  divisions  moved 
out  in  rapid  succession  toward  the  ports,  new  organizations 
were  quickly  formed  in  the  camps  they  vacated.  Six  of  these 
'camps  were  designated  for  the  special  training  of  replacement 
troops.  Thus  Camp  Hancock  became  the  center  for  training 
machine  gunners,  Camp  Taylor  was  given  over  wholly  to  field 


PERIOD  OF  DEVELOPMENT  91 

artillery,  etc.;  while  in  still  other  camps,  new  complete  divi- 
sions were  organized  for  training. 

It  was  a  mooted  question  in  the  General  Staff  whether 
these  new  divisions  should  be  made  as  the  first  ones  had  been, 
out  of  wholly  new  and  untrained  troops,  or  whether  the 
recruits  should  first  be  trained  in  specialized  camps  for  infan- 
trymen, artillerymen,  engineers,  and  men  of  other  arms  which 
are  parts  of  divisional  units,  and  then  later  brought  together 
into  a  divisional  organization.  It  was  recognized  that  certain 
of  these  troops  could  be  trained  much  more  quickly  than 
others.  Thus  the  British,  at  the  time  when  they  were  hardest 
pressed  to  get  additional  troops  to  France,  were  sending  men 
across  the  Channel  and  into  infantry  combat  six  weeks  after 
calling  them  from  civil  life;  while  their  practice  in  organizing 
machine  gun  battalions  has  been  to  select  infantrymen  already 
experienced  in  France  and  bring  them  back  for  three  to  four 
months'  special  training  in  the  great  Machine  Gun  School  at 
Grantham. 

But  once  more  the  limited  available  capacity  of  our  camps, 
coupled  with  the  difficulties  of  transportation  involved  in  the 
plan  for  assembling  divisions,  proved  a  decisive  factor  in  the 
situation.  Moreover,  it  was  recognized  that  not  only  must  the 
soldiers  be  trained,  but  the  officers,  too,  need  the  experience  of 
working  for  a  considerable  period  as  integral  parts  of  a  com- 
plete divisional  unit.  And  so  the  new  divisions  were  created 
de  novo  as  the  earlier  ones  had  been,  but  with  these  marked 
differences:  a  larger  number  of  men  already  specially  trained, 
formed  the  nucleus  of  the  more  technical  units ;  and  the  new 
recruits  that  went  into  all  the  units  passed  first  through  the 
depot  brigades.  Their  original  assignment  to  a  company  or 
train  in  a  division  was  made  on  the  basis  of  their  individual 
qualifications  and  the  requirements  of  the  particular  units  to 
which  they  were  sent.  In  the  words  of  Major  General  P.  C. 
Harris,  The  Adjutant  General,  "these  new  divisions  were 
scientifically  constructed." 

Utilizing  the  Lest  Fit.     It  was  foreseen  that  the  supply  of 


92  HISTORY  OF  PERSONNEL 

drafted  men  in  Class  I.,  physically  qualified  for  full  military 
service,  would  eventually  be  exhausted.  It  was  also  recog- 
nized that  many  army  duties,  particularly  those  of  a  clerical 
sort,  could  be  performed  quite  as  well  by  men  not  fit  for  com- 
bat service.  Mr.  Swan  was  delegated  to  study  the  possibilities 
for  utilizing  limited  service  men,  so  as  to  release  many  who 
were  physically  fit  for  overseas  duty.  He  also  co-operated 
with  Lt.  Col.  Bernard  Lentz  of  the  General  Staff  and  Lt. 
Colonel  H.  E.  Mock  of  the  Surgeon  General's  Office  in 
preparing  the  plans  for  the  development  battalions,  which 
were  created  in  May,  and  which  saved  to  the  Army  many 
thousands  of  recruits  who  otherwise  would  have  been  useless. 
(See  Chapter  40.) 

The  number  of  limited  service  men  called  to  the  colors 
eventually  totalled  108,355. 

Progress.  The  space  limits  of  this  narrative  forbid  more 
than  the  briefest  mention  of  several  notable  developments: 
the  extension  of  the  classification  system  to  the  personnel  of 
the  Ordnance,  Quartermaster,  and  Aviation  camps,  and  the 
Coast  Defense  stations ;  the  resulting  need  for  more  super- 
vision, which  led  to  the  appointment  of  several  junior  per- 
sonnel supervisors,  and  the  selection  of  Mr.  J.  F.  Page  to 
assist  Mr.  Reilly  in  directing  their  work;  the  introduction,  in 
June,  of  the  standardized  trade  tests;  the  initiation  by  Mr 
A.  E.  Dodd,  in  July,  of  the  Personnel  Specifications  Unit 
which  eventually,  under  Captain  James  Gregg,  completed  th? 
monumental  task  of  preparing  definitions  of  duties  and  state- 
ments of  qualifications  for  every  post  in  practically  every  unit 
of  the  army;  the  sailing  of  Mr.  W.  S.  MacArthur,  July  7,  to 
relieve  Mr.  Clothier  of  the  duties  of  liaison  between  the  Com- 
mittee and  the  headquarters  of  the  A.  E.  F.,  and  of  Dr. 
Bingham  and  Dr.  Beardsley  Ruml,  to  study  the  occupational 
classification  and  trade  test  methods  of  the  British  Army. 

Other  chapters  will  describe  in  detail  the  enlargement, 
under  Mr.  W.  B.  Hale,  of  the  central  office  for  supervising 
the  allotment  and  distribution  of  the  skill  in  the  incoming 


PERIOD  OF  DEVELOPMENT 93 

draft  increments;  the  selection  of  pivotal  men  for  furlough 
back  to  essential  war  industries ;  the  gradual  standardization 
of  procedure  in  receiving  men  into  camp,  leading  to  large 
economies  of  time  and  money,  and  ultimately  to  the  authoriza- 
tion of  buildings  specially  designed  for  this  purpose;  the 
spread  throughout  the  staff  corps  of  the  officers's  classification 
system,  and  the  final  adoption  of  the  rating  scale  for  use  in 
the  entire  army  in  making  quarterly  reports  on  all  officers; 
the  pains  taken  to  insure  the  correct  use  of  this  scale,  by 
personal  instruction  of  the  officers  in  all  camps  and  by  analysis 
of  the  ratings  reported — duties  in  which  A.  U.  Pope  showed 
unusual  effectiveness. 

The  business  of  the  Committee  had  multiplied,  particularly 
in  the  printing  and  distribution  of  C.  C.  P.  forms.  I.  B.  Davies 
did  a  service  for  which  every  member  of  the  Committee  was 
grateful,  in  systematizing  the  records  of  purchase  and  ship- 
ment, simplifying  the  accounting,  and  smoothing  out  numerous 
kinks  in  the  office  organization.  With  the  help  of  M.  L.  Free, 
D.  Hughes,  and  E.  B.  Graves,  he  exemplified  within  the  Com- 
mittee's home  offices  the  basic  principles  of  personnel  adminis- 
tration. 

Problems.  One  complication  was  developing  which  later 
grew  increasingly  serious:  the  personnel  adjutants  were 
coming  to  handle  more  and  more  of  the  paper  work  of  the 
adjutant's  office,  so  that  less  of  their  thought  and  energy  could 
be  concentrated  on  strictly  personnel  administration.  A 
divorce  of  these  two  functions  was  clearly  indicated,  and 
plans  were  prepared  to  effect  such  a  separation;  but  the 
armistice  arrived  just  as  these  plans  were  about  to  be  realized. 

Perhaps  the  most  serious  defect  in  the  army  personnel 
organization  at  this  time,  as  viewed  from  Washington,  was 
the  absence  of  unified  administration  of  the  personnel  in  all 
staff  corps  camps.  The  Quartermaster  camp  at  Jacksonville, 
for  example,  had  a  surplus  of  skilled  machinists  and  mechanics 
which  were  greatly  needed  in  the  Ordnance  Department  at 
Camp  Hancock;  and  the  Ordnance  camp  had  several  extra 


94  HISTORY  OF  PERSONNEL 

teamsters  and  horseshoers  which  the  Quartermaster  Corps 
required.  But  the  machinery  for  effecting  a  prompt  inter- 
change was  lacking.  In  the  next  two  chapters  will  be  found 
suggestions  of  the  direction  in  which  developments  were 
moving,  toward  the  logical  goal  of  one  unified  control  of  per- 
sonnel throughout  all  branches  of  the  service. 


CHAPTER  8 

COMMITTEE    ON    CLASSIFICATION    OF    PER- 

SONNEL  TRANSFERRED  TO  JURISDICTION 

OF  THE  GENERAL  STAFF 

The  first  principle  of  personnel  administration  enunciated  in 
Chapter  I,  was  that  of  "Functionalization."  As  was  there 
pointed  out,  this  meant  that  "the  control  and  adminstration 
of  personnel  must  be  made  the  first  duty  of  an  official  who 
gives  it  his  undivided  thought  and  his  best  energies."  "Officers 
who  are  also  charged  with  a  multitude  of  other  pressing 
duties"  cannot  be  held  responsible  for  "search  for  talent," 
"personnel  classification,"  nor  for  "assigning  men  to  the  duties 
where  their  special  abilities  will  count  for  most." 

The  Army  had  already  functionalized  such  duties  as  keep- 
ing records,  handling  supplies,  health  and  sanitation,  legal 
functions,  etc.,  by  the  establishment  respectively,  of  the  Adju- 
tant General's  Department,  the  Quartermaster  Corps,  the 
Medical  Department,  the  Judge  Advocate  General's  Depart- 
ment, etc.  But  personnel  work  had  never  been  recognized  in 
the  Army  as  a  separate  function ;  nor  had  it  been,  except  in  a 
few  concerns,  in  business. 

The  enlargement  of  the  Army  forced  attention  upon  the 
matter.  And  as  time  went  on  certain  serious  defects  in  the 
existing  organization  came  more  and  more  prominently  to  the 
front,  so  that  almost  simultaneously  from  a  number  of  quarters 
plans  were  developed  for  a  more  complete  centralization  of  all 
personnel  work. 

THE   SITUATION   IN   JUNE,   1918 

The  Infantry,  which  constitutes  by  far  the  larger  part  of 
our  armies,  had  no  chief  and  no  personnel  section.  The  Field 

95 


96 HISTORY  OF  PERSONNEL 

Artillery,  which,  next  to  the  Infantry,  constitutes  the  largest 
part  of  the  Army,  had  a  chief,  but  no  personnel  section.  The 
Signal  Corps,  Quartermaster  Corps,  Medical  Department,  Ord- 
nance Department,  Coast  Artillery,  and  some  of  the  smaller 
bureaus  maintained  separate  personnel  sections  under  direction 
of  their  chiefs.  At  least,  four  of  these  branches  of  the  service 
had  assigned  to  their  personnel  sections  a  larger  force  of 
officers  and  clerks  and  greater  floor  space  than  that  maintained 
in  the  Adjutant  General's  Department  which  kept  the  records 
of  Infantry  and  Field  Artillery  and  many  personnel  records 
of  the  entire  Army. 

THE   NEED   FOR   CENTRALIZATION 

The  most  important  need  for  centralization  was  that  of 
functionalization.  Personnel  work  needed  to  be  recognized  as 
a  specific  function  of  the  Army  and  administered  on  the  same 
basis  throughout  the  army  as,  for  example,  the  handling  of 
supplies.  There  was  next  the  need  for  centralizing  the  control 
of  all  supply  and  demand  of  personnel — both  commissioned 
and  enlisted.  Once  centralized  there  could  be  established  and 
operated  a  standardized  system  of  recruiting,  handling  of 
selective-service  men  regardless  of  the  camps  to  which  sent, 
classification,  appointment,  transfer,  etc.  Records  could  simi- 
larly be  standardized  and  much  correspondence  thereby 
eliminated. 

A  concrete  example  makes  the  need  clearer.  At  one  of  the 
Quartermaster  Mechanical  Repair  Shops  they  received  en- 
listed men  from  various  sources.  Some  were  fitted  for  the 
specialized  work  to  be  done  there — some  were  not.  The  per- 
sonnel adjutant  spent  some  time  scouting  around  for  good 
mechanics  in  a  nearby  camp  and  when  he  found  a  man  to  his 
liking,  made  a  trade  of  an  able-bodied  man  of  value  to  infantry 
in  return  for  a  mechanic.  War  Department  orders  forbid  such 
transfers,  but  it  was  carried  on  because  it  was  so  essential  to 
the  best  interests  of  the  repair  shop.  With  a  centralized 
personnel  organization  such  transfers  could  easily  have  been 


COMMITTEE  ON  CLASSIFICATION          97 

provided  for,  but  up  to  the  signing  of  the  armistice,  such  an 
emergency  could  not  be  handled  except  by  the  handling  of 
each  individual  case  through  the  office  of  the  Quartermaster 
General  and  The  Adjutant  General  in.  Washington. 

STEPS    LEADING   TO    CENTRALIZATION 

On  May  23,  1918,  Colonel  I.  L.  Reeves,  Inspector  General's 
Department,  addressed  a  memorandum  to  The  Assistant  Sec- 
retary of  War  on  the  subject  of  "Centralization  of  Personnel 
Sections  of  all  Bureaus."  This  report  pointed  out  the  needs 
for  centralization,  and  purported  to  answer  all  arguments 
against  the  change.  Following  this  report  many  memoranda 
were  prepared  and  boards  appointed  to  investigate  and  report 
on  methods  of  centralization. 

One  of  the  first  of  these  reports  was  furnished  by  the  War 
Service  Exchange,  a  branch  of  the  Committee,  which  was  con- 
cerned with  securing  specialists,  particularly  for  commissioned 
positions  in  the  Army.  A  summary  of  the  report  is  given  in 
Chapter  39. 

On  June  6,  1918,  Colonel  Reeves  presented  another  memo- 
randum, going  into  the  subject  in  greater  detail. 

Three  days  later  a  board  was  appointed  "for  the  purpose  of 
submitting  recommendations  as  to  any  changes  that  might  be 
considered  as  necessary  or  desirable  in  the  existing  system  of 
classification  of  enlisted  personnel  of  the  Army  of  the  United 
States."  This  board  consisted  of  one  member  of  the  General 
Staff  [Lt.  Col.  (later  Brig.  Gen.)  R.  I.  Rees],  one  from  the 
Adjutant  General's  Department  [Lt.  Col.  (later  Col.)  A.  M. 
Ferguson],  one  from  the  Provost  Marshal  General's  Office 
[Lt.  Col.  (later  Col.)  J.  H.  Wigmore],  and  the  director  of 
the  Committee  on  Classification  of  Personnel  [Dr.  W.  D. 
Scott].  On  June  8th,  1918,  this  board  reported  as  follows: 

"The  Board  advises  that  the  Committee  on  Classification 
of  Personnel  performs  an  indispensable  service  to  the 
Army  in  locating  classified  and  distributing  skilled  men  to 


98  HISTORY  OF  PERSONNEL 

meet  the  necessities  in  the  organization  of  units  both  in 
the  line  of  the  Army  and  in  the  Staff  Corps. 

"The  Board  believes  that  the  work  of  the  Committee 
has  developed  along  correct  lines,  and  has  no  recommen- 
dations to  make  in  the  change  of  its  present  operations, 
but  that  all  changes  recommended  by  it  will  be  in  the 
direction  of  greater  co-ordination  with  other  departments 
and  further  expansion  of  its  duties. 

"In  its  consideration  of  the  industrial  index  of  the 
Provost  Marshal  General's  Office  the  Board  believes  that 
the  index,  in  larger  form  should  be  continued  and  that  it 
should  become  an  important  adjunct,  co-ordinating  with 
the  work  of  the  Committee  on  Classification  of  Personnel, 
in  placing  skilled  men  directly  into  organizations  of  the 
Army  in  which  technicians  or  mechanics  are  needed. 

"The  Board  recommends  that  the  Committee  on  Classi- 
fication of  Personnel  be  given  every  assistance  in  estab- 
lishing proper  co-ordination  of  its  personnel  work  in 
America,  and  with  that  in  the  American  Expeditionary 
Force ;  that  the  closest  possible  cooperation  be  established 
between  the  Provost  Marshal  General's  Office  and  the 
Committee  on  Classification  of  Personnel,  in  order  that 
the  industrial  index  may  be  completely  utilized  to  fill  the 
Army's  needs  and  also  to  protect  the  need  for  skilled  men 
in  essential  war  industry ;  that  the  closest  possible  cooper- 
ation be  established  between  the  Committee  on  Classifica- 
tion of  Personnel  and  the  Psychological  Division  of  the 
Medical  Department,  in  order  that  the  findings  of  that 
division  may  be  fully  employed  in  assigning  men 

"Finally  as  a  logical  sequence  of  the  above  recommen- 
dation, the  Board  further  recommends  the  establishment 
of  a  centralized  personnel  division  by  the  Adjutant 
General  of  the  Army." 

CENTRALIZATION  OF  COMMISSIONED  PERSONNEL 

Up  to  August  26,  1918,  no  action  was  taken  toward  cen- 
tralization, although  various  plans  were  suggested  in  addition 
to  those  referred  to  above.  On  that  date  General  Orders, 
No.  80,  was  issued  which  outlined  the  duties  of  the  General 
Staff  and  definitely  provided  for  personnel  work  as  a  function 
of  the  Operations  Division,  General  Staff,  in  these  words: 


COMMITTEE  ON  CLASSIFICATION          99 

"The  duties  of  this  division  shall  include  cognizance 
and  control  of  the  following: 

"(a)  The  recruitment  and  mobilization  of  the  Army, 
including  the  assignment  and  distribution  of  the  draft;  the 
personnel  of  troops ;  the  movement  and  disposition  of 
troops,  and  the  determination  of  all  overseas  priorities. 

"(b)  The  appointment,  promotion,  transfer  and  assign- 
ment of  the  commissioned  personnel  of  all  branches  of  the 
Army." 

General  Orders  No.  86.  The  above  was  followed  on  Sep- 
tember 18,  1918,  by  General  Orders  No.  86,  Section  III,  as 
follows : 

"1.  In  order  to  carry  out  the  provisions  of  subpara- 
graph  b,  paragraph  5,  General  Orders,  No.  80,  War 
Department,  1918,  relating  to  General  Staff  duties,  which 
assigns  to  the  Operations  Division,  General  Staff,  'the 
appointment,  promotion,  transfer,  and  assignment  of  the 
commissioned  personnel  of  all  branches  of  the  Army', 
there  is  established  the  Commissioned  Personnel  Branch, 
Operations  Division,  General  Staff,  which  will  be  formed 
by  consolidation  of  (a)  the  Commissioned  Personnel  Sec- 
tion, General  Staff,  and  (6)  the  Committee  on  Classifica- 
tion of  Personnel  of  The  Adjutant  General's  Office,  to- 
gether with  such  additional  officers  of  the  General  Staff 
Corps  and  clerical  force  as  may  be  assigned  to  it  from 
time  to  time. 

"2.  The  Commissioned  Personnel  Branch,  Operations 
Division,  General  Staff,  will  be  under  the  control  of  a 
General  Staff  officer,  to  be  known  as  Chief  of  the  Per- 
sonnel Branch. 

"3.  All  staff  corps  and  departments  will  hereafter  sub- 
mit requisitions  to  the  Operations  Division,  General  Staff, 
for  the  number  and  kind  of  officers  needed  for  any  par- 
ticular organization  or  duty.  These  requisitions  will  be 
filled  in,  the  same  manner  as  now  followed  in  assigning 
enlisted  specialists.  Recommendations  for  promotion  will 
likewise  be  submitted  to  the  Operations  Division. 

"4.  The  commissioned  personnel  branches  of  the  various 
staff  corps  and  departments,  as  heretofore  operated,  are 
hereby  abolished  and  their  functions  and  personnel,  as 
far  as  may  be  necessary,  will  be  taken  over  into  the 
Commissioned  Personnel  Branch  of  the  General  Staff. 


100  HISTORY  OF  PERSONNEL 

The  commissioned  personnel  activities  in  the  various  staff 
corps  and  departments  will  thereafter  be  confined  to  the 
keeping  of  the  necessary  records  to  enable  them  to  requisi- 
tion, under  the  direction  of  their  chief,  such  commissioned 
personnel  as  may  be  required." 

ORGANIZATION  OF  THE  COMMITTEE  UNDER  THE 
GENERAL  STAFF 

The  above  order  transferred  the  Committee  from  the  juris- 
diction of  the  Adjutant  General's  Department  to  the  General 
Staff.  But  the  General  Order  pertained  only  to  commissioned 
personnel,  whereas  the  Committee  was  concerned  with  both 
commissioned  and  enlisted  personnel.  The  logjical  thing 
apparently  was  to  establish  a  Centralized  Enlisted  Personnel 
Branch  and  had  the  war  continued  this  probably  would  have 
taken  place.  See  Chapter  22  for  further  details. 

As  the  only  possible  method  of  harmonizing  the  conflicting 
elements  of  the  situation  was  to  go  ahead  on  the  supposition 
that  there  was  a  Personnel  Branch  in  the  Operations  Division 
which  included  commissioned  and  enlisted  personnel  and  that 
the  Committee  was  in  charge  of  the  Enlisted  Personnel  Section 
of  the  Personnel  Branch.  Upon  this  basis  the  organization 
chart  of  October  5,  1918  was  drawn  up,  as  follows: 

Organization  Chart  of  October  5,  1918 

I.  Administration 

1.  Training  of  personnel  adjutants,  etc. 

2.  Supervision  of  Field  Work. 

a.  Depot  Camps  and  Army  Posts. 

b.  Development  Battalions. 

c.  S.  A.  T.  C.  Schools. 

3.  Inspection  of  Units. 

4.  Supervision  of  Personnel  Work  in  Staff  Corps 

Camps. 

5.  -Trade  Tests. 

6.  Statistics. 

7.  -Supplies,  etc. 


COMMITTEE  ON  CLASSIFICATION         101 

II.  Demand   Section 

1.  Line  Troops. 

2.  Staff  Corps. 

3.  Industry. 

III.  Planning 

1.  Adjustment  of  Present  Supply  to  Demand. 

2.  Planning  Future  Supply  and  Demand. 

3.  Personnel  Specifications. 

4.  Limited  Service  Men. 

IV.  Supply  Section 

1.  The  Draft. 

2.  S.  A.  T.  C. 

3.  Special  Induction. 

4.  Development  Battalions. 

5.  Transfer. 

In  addition  to  the  duties  herein  outlined  the  Committee 
cooperated  in  many  ways  with  the  Commissioned  Personnel 
Section. 

The  Committee  Militarized.  Up  to  this  time  the  Committee 
had  operated  entirely  as  a  committee  of  civilians  within  the 
Adjutant  General's  Department.  Major  (later  Lt.  Col.) 
Grenville  Clark  had  originally  represented  the  Committee  in 
official  matters  with  The  Adjutant  General.  In  April,  1918, 
he  was  made  a  member  of  the  Committee  on  Education  and 
Special  Training  (see  Chapter  41).  Lieutenant  Colonel  (later 
Colonel)  A.  M.  Ferguson  then  took  his  place. 

On  October  22,  1918,  Major  General  Henry  Jervey,  Assis- 
tant Chief  of  Staff  ordered  that  the  members  of  the  Commit- 
tee stationed  at  Washington  and  certain  associates  be  com- 
missioned. In  accordance  with  this  the  following  received 
their  commissions :  Colonel  Walter  Dill  Scott,  Lt.  Col.  W.  V. 
Bingham,  Lt.  Col.  R.  C.  Clothier,  Lt.  Col.  J.  J.  Coss,  Lt.  Col. 
P.  J.  Reilly,  Lt.  Col.  Edward  K.  Strong,  Jr.,  Lt.  Col.  J.  J. 
Swan,  and  Major  J.  F.  Page.  A  few  days  previous  Dr. 
Raymond  Dodge  had  been  co.mmissioned  Lieutenant  Comman- 
der in  the  Navy  in  appreciation  of  his  services  along  personnel 
lines.  The  following  would  have  been  commissioned  as  major 
or  captain  had  the  signing  of  the  armistice  not  intervened, 


102  HISTORY  OF  PERSONNEL 

their  papers  being  on  that  date  in  process  of  transit  through 
the  Adjutant  General's  Office:  C.  F.  Axelson,  C.  R.  Beard, 
Storm  V.  Boyd,  J.  C.  Burg,  C.  R.  Chase,  William  Clark,  E. 
M.  Delabarre,  F.  F.  Dugan,  H.  E.  French,  E.  H.  Furman, 
E.  R.  Halliday,  J.  W.  Harrison,  L.  B.  Hopkins,  G.  B.  Hotch- 
kiss,  C.  W.  Jones,  G.  M.  Leonard,  J.  H.  Lewis,  S.  B.  Mathew- 
son,  D.  J.  O'Connor,  E.  S.  Robinson,  Beardsley  Rural,  A.  J. 
Turner,  Kendall  Weisiger,  H.  L.  Wellman,  C.  J.  Whipple, 
S.  E.  Wright;  W.  B.  Hale  and  Winslow  Russell. 

NEED  FOR  CENTRALIZED  ENLISTED  PERSONNEL 

BRANCH 

The  same  reasons  for  centralizing  commissioned  personnel 
held  for  centralizing  enlisted  personnel  work.  There  was 
also  the  additional  need  due  to  the  fact  that  General  Orders 
No.  86,  had  merged  the  Committee  with  the  General  Staff, 
but  had  not  transferred  its  work  with  enlisted  personnel  from 
the  Adjutant  General's  Department  to  General  Staff,  so  that 
the  resulting  situation  was  most  confusing. 

On  October  30th,  steps  were  inaugurated  which  would  prob- 
ably have  led  to  this  centralization  had  the  armistice  not 
intervened.  It  was  realized  that  the  Allotment  Section,  Opera- 
tions Division,  General  Staff,  was  dependent  upon  the  effi- 
ciency of  the  several  enlisted  personnel  sections  of  the  Staff 
Corps.  And  there  was  confronting  this  Section  a  shortage 
of  about  500,000  specialists  so  that  every  precaution  would 
have  to  be  observed  in  the  handling  of  all  specialists  through- 
out the  army.  Through  the  Allotment  Section  distribution  was 
made  of  specialists  from  depot  brigades  to  Staff  Corps  anu 
through  the  Committee's  field  supervisors  some  control  was 
exercised  over  the  handling  of  these  specialists  in  the  Staff 
Corps  camps.  But  the  Allotment  Section  had  no  control  over 
the  Enlisted  Personnel  Sections  of  the  various  Staff  Corps 
and  consequently  could  not  provide  that  there  would  be  an 
efficient  utilization  of  specialists  within  the  Staff  Corps  itself 
nor  for  an  efficient  transfer  of  specialists  between  the  Staff 


COMMITTEE  ON  CLASSIFICATION         103 

Corps  in  terms  of  their  needs  and  supply.  Major  D.  W.  K. 
Peacock  was  accordingly  appointed  to  make  recommendations 
with  the  ultimate  purpose  in  mind  of  developing  a  standard- 
ized organization  and  office  procedure  in  each  of  the  Enlisted 
Personnel  Sections  of  the  Staff  Corps  and  to  bring  all  of  them 
into  direct  harmony  with  the  Allotment  Section  and  the  Per- 
sonnel Branch,  both  of  the  Operations  Division  of  the  General 
Staff. 

As  an  illustration  of  the  need  for  just  this,  note  that  on 
September  4,  1918,  the  Committee  outlined  a  complete  plan 
for  personnel  work  to  the  Personnel  Section  of  the  Depart- 
ment of  Military  Aeronautics.  This  was  done  in  order  that 
a  more  efficient  handling  of  personnel  from  the  Washington 
Office  would  eliminate  many  of  the  defects  reported  by  the 
Committee's  field  supervisors.  But  the  Committee  was  power- 
less to  enforce  its  program  as  neither  it  nor  the  Personnel 
Branch  had  direct  authority  over  the  Department  of  Military 
Aeronautics.  The  result  was  that  no  changes  were  accom- 
plished. 


CHAPTER  9 

STATUS  OF  PERSONNEL  ORGANIZATION  AT 
CONCLUSION  OF  ARMISTICE 

ORGANIZATION  UNDER  THE  GENERAL  STAFF 

The  previous  chapter  of  this  history  has  related  how  the 
personnel  work  of  the  Army  was  concentrated  under  the 
direction  of  the  General  Staff.  At  that  time  the  Committee 
on  Classification  of  Personnel  went  out  of  existence  in  name, 
although  its  functions  and  personnel  continued  the  same  as 
ever  under  the  name  of  the  Miscellaneous  Section  of  the  Per- 
sonnel Branch  of  the  Operations  Division  of  the  General  Staff. 

Simultaneously  the  General  Staff  ruled  that  the  personnel 
of  the  Committee  and  its  associates  should  be  militarized, 
although  the  work  had  been  carried  on  from  the  beginning 
under  these  men  in  civilian  status.  As  has  been  stated  above, 
only  a  few  of  the  commissions  were  received  before  the 
Armistice  was  signed.  In  consequence  the  remaining  mem- 
bers of  the  group  were  prevented  from  accepting  military 
status  through  the  order  then  issued  preventing  the  granting 
of  further  commissions.  As  a  result,  from  November  llth 
until  the  conclusion  of  the  group  activities  in  1919,  some  of 
the  members  were  in  military  status  and  others  were  in  civilian 
status. 

The  work  of  the  personnel  organization  at  this  time  was 
clearly  functionalized  and  individual  responsibilities  assigned 
to  individual  members.  The  Chief  of  the  Division,  Colonel 
A.  M.  Ferguson,  exercised  general  direction  of  policies.  The 
administration  of  the  Division  was  exercised  through  Lt.  Col. 
R.  C.  Clothier,  Executive  Officer.  The  divisions  of  the  work 
are  outlined  as  follows: 

104 


STATUS  OF  PERSONNEL  105 

I.  Planning  Sub-Section 

Col.  W.  D.  Scott 

In  the  absence  of  Colonel  Scott  the  Planning  Sub-Section 
of  the  Miscellaneous  Section  functioned  under  the  direction 
of  Lieutenant  Colonel  Bingham.  This  section  was  charged 
with  all  planning  and  research  work  in  relation  to  personnel 
work  in  the  Army.  Owing  to  the  ramifications  of  the  Army 
work  it  was,  of  course,  necessary  to  subdivide  the  functions 
of  the  Planning  Sub-Section  into  specialized  duties.  These 
are  outlined  as  follows: 

a.  Procurement  and  Distribution  of  Enlisted  Personnel — 
Mr.  Wm.  B.  Hale.     Determination  of  plans  for  the  future 
raising  of  armies  as  a  basis  for  determining  future  needs  for 
enlisted  personnel.     Analytical  study  of  the  future  needs  of 
the  Staff  Corps  and  •  line  units.     Preparation  of  such  plans 
in  detail.     Determination  in  advance  just  where,  how   and 
when  specialists  and  others  are  to  be  obtained.    Co-ordination 
of  the  various  sources  of  supply  to  this  end. 

b.  Camp  Procedure.    Lt.  Col.  Strong  and  Mr.  D.  J.  O'Con- 
nor.   Study  of  ways  and  means  of  increasing  the  effectiveness 
and  simplicity  of  personnel  work  in  the  camps  and  at  Army 
posts.     Revision  and  correction  of  forms  to  meet  new  condi- 
tions.     Initiating  new   and  better   ways   of   getting   results. 
Analysis   of   methods.      Devising   ways   and   means   to   meet 
preparation  of  manual  covering  such  procedure. 

c.  Cooperation  with  Policies  and  Planning  Branch — (Com- 
missioned Personnel)  Lieut.  Col.  Bingham. 

d.  Development  Battalions — Lt.  Col.  Swan  and  Mr.  Harry 
R.  Wellman.     Study  of  Army  organization  to  determine  in 
what  positions  and  in  what  ways  limited  service  men  can  be 
used  most  effectively  in  the  army  organization.     Cooperation 
with  the  Medical  Department  in  the  preparation  of  tables  to 
be  used  as  bases   for  the  effective  placement  of  such  men. 
Selection  and  assignment  of  men  in  the  development  battalions. 

e.  Officers'  Ratings  and  Qualifications — Dr.  E.  L.  Thorn- 
dike  and   Dr.   H.   O.   Rugg.     Study  of  officers'  ratings   and 


106  HISTORY  OF  PERSONNEL 

qualifications    as    a   means    of   standardizing   procedure    and 
making  ratings  and  qualifications  more  accurate  and  effective. 

f.  Trade  Specifications — Lt.   Col.   Swan.      Preparation   of 
specifications  giving  exact  analysis  of  all  jobs  in  the  Army  as 
a  means  of  standardizing  terminology  and  insuring  complete 
understanding    on    the    part    of    everyone    engaged    in    army 
personnel  work,  with  reference  to  the  meaning  of  terms. 

g.  Staff  Corps  Personnel  Work — Lt.  Col.  Strong  and  Maj. 
D.  W.  K.  Peacock.     Preparation  of  plans  for  the  standardiza- 
tion  of  the   organization  of  enlisted   personnel   work   in   the 
Staff   Corps.      Cooperation   in   the    establishment   of    proper 
coordination.    Liaison  with  the  section  in  charge  of  the  devel- 
opment of  tables  of  occupational  needs. 

h.  S.  A.  T.  C.  Personnel  Work — Dr.  Thorndike  and  Lt. 
Col.  Coss.  Provision  for  and  direction  of  cooperation  of  orga- 
nization with  the  Committee  on  Education  and  Special  Train- 
ing, in  charge  of  S.  A.  T.  C.  Assistance  to  Dr.  Thorndike 
in  plans  for  enlistment,  classification  and  selection  of 
S.  A.  T.  C.  soldiers  and  officer  candidates.  Direction  of  plans 
for  S.  A.  T.  C.  Personnel  Schools  and  maintenance  of  school 
for  Personnel  Officers  at  Ft.  Sheridan.  Cooperation  with  Per- 
sonnel Methods  Division,  S.  A.  T.  C.  in  teaching  and  advisory 
status. 

i.  Demobilization — Lt.  Col.  Coss  and  Lt.  Col.  Clothier. 
Preparation  of  report  on  plans  for  demobilization  prepared  by 
other  nations.  Preparation  of  suggested  plans  for  the  demo- 
bilization of  the  United  States  Army  after  the  war  with  the 
greatest  possible  expedition  and  safety,  with  a  special  refer- 
ence to  the  ability  of  industry  to  reabsorb  the  man-power  thus 
relieved. 

j.  Preparation  of  Trade  Tests — Mr.  L.  B.  Hopkins  and  Mr. 
Beardsley  Ruml,  Mr.  Storm  V.  Boyd,  Major  Joseph  Hayes, 
Mr.  S.  B.  Mathewson,  Mr.  E.  S.  Robinson,  Mr.  Max  Wat- 
son. Studying  of  Army  trades  according  to  the  needs  of  the 
Army  and  the  preparation  and  standardization  of  trade  tests 
for  the  selection  in  advance  of  men  who  possess  skill  in  those 


STATUS  OF  PERSONNEL  107 

trades.  The  testing  of  such  tests  to  establish  their  reliability, 
k.  Tables  of  Personnel  Specif  cations — Lt.  Col.  Bingham, 
Major  Sydney  A.  Friede,  Capt.  Jas.  Gregg,  Capt.  Joseph  M. 
Larimer,  Lieut.  J.  W.  Dissette,  Lieut.  R.  J.  Byrnes.  Study 
of  the  personnel  needs  of  the  line  units  and  of  the  staff  corps 
for  personnel  in  terms  of  industrial  qualifications.  Prepara- 
tion of  tables  translating  army  terms  into  terms  of  industrial 
skill  showing  the  number  of  officers  and  men  of  each  par- 
ticular kind  needed  in  the  effective  organization  of  each  kind  of 
unit — these  tables  to  be  used  as  bases  for  the  recruitment  of 
army  units. 

II.  Field  Direction  Sub-Section 

Lieut.  Col.  Reilly  and  Major  Page 

This  branch  of  the  work  covered  the  installation  of  the 
personnel  system  in  the  Army  Camps,  and  its  constant  super- 
vision by  mail  and  through  military  and  civilian  representa- 
tives to  insure  effective  and  prompt  operation.  Through  the 
Division  of  Field  Direction  the  plans  of  the  Planning  Branch 
were  crystallized  into  effective  action  and  applied  practically 
to  the  problems  of  the  Army.  Under  this  there  were  five 
sub-divisions : 

a.  General  Supervision  and  Inspection  of  Work  in  Camps — 
William  Clark,  Mr.  A.  J.  Turner,  Mr.  C.  R.  Beard,  Mr.  E.  M. 
Delabarre,  Major  Geo.  F.  Wilhelm,  Mr.  Henry  E.  French. 
Supervision  and  direction  of  field  work  at  Depot  Camps  and 
other  Army  Posts.     Assistance  to  personnel  officers.     Stan- 
dardization of  practice  in  the  field.     Inspection  of  results. 

b.  Trade  Test  Installation — Capt.  E.  O.  Buhler.     Installa- 
tion  in    the    camps    of  the   trade   test   system   prepared    and 
standardized  by  the  Trade  Test  Section  of  the  Planning  Staff. 
Supervision  of  the  operation  of  trade  tests  in  the  camps  to 
insure  the  effective  testing  of  enlisted  men  claiming  skill  in 
certain  trades. 

c.  Development  Battalions — Mr.  Harry  R.  Wellman.  Appli- 
cation of  personnel  system  through  practice  in  the  develop- 


108  HISTORY  OF  PERSONNEL 

ment  battalions.  Supervision  of  the  work  in  those  camps  to 
insure  close  operation  between  line,  medical  and  personnel 
officers  and  effective  placement  and  use  of  limited  service  men. 

d.  Final    Inspection    of    Units — Lt.    Col.    Royal    Mattice. 
Responsibility  for  the  inspection  of  units  bound  overseas  with 
reference  to  the  completeness  of  their  records. 

e.  Supervision  and  Inspection — Coast  Artillery — Capt.  G. 
E.  Shipway.    Installation  of  the  personnel  system  in  the  posts 
of  the  Coast  Artillery,  and  standardization  of  the  procedure 
for  placing  men  properly  in  the  effective  organization  of  coast 
artillery  units. 

III.  Allotment  Sub-Section 

Mr.  Wm.  B.  Hale  and  Mr.  Kendall  Weisiger. 
Under  this  Sub-Section  was  conducted  a  study  of  present 
and  future  needs  of  line  organizations  and  staff  corps 
for  enlisted  personnel  and  of  enlisted  personnel  available  for 
these  needs,  both  in  hand  and  probable.  Inspection  of  requisi- 
tions and  of  reports  of  personnel  available  received  from  the 
various  camps  and  other  sources  according  to  the  adequacy  of 
the  supply  of  various  kinds  of  skilled  men  and  the  relative 
urgency  of  the  demand  in  different  units.  Selection  of  rare 
specialists  needed  by  industry,  and  the  scrutiny  and  analysis 
of  requests  for  such  men.  Maintenance  of  record  of  requisi- 
tions received  and  how  handled,  and  of  record  of  personnel 
furnished. 

a.  Coordination  of  Requisitions — Mr.  A.  C.   Robinson  and 
Mr.    Ralph    T.    Bickell.      Reception,    scrutiny,    analysis    and 
consolidation  of  requisitions  determining  relative  priority  of 
each  in  cooperation  with  Lieut.  Col.  R.  H.  Kimball  of  the 
Operations  Division,  General  Staff. 

b.  Distribution   and   Supply — Mr.    H.    P.    Shaw    and    Mr. 
Hathaway  Watson.     Balancing  of  the  supply  of  men  against 
the  demand  according  to  the  relative  importance  and  immediate 
urgency  of  the  requisition. 

c.  Placement  of  Rare  Specialists — Mr.   Louis   R.   Frazier. 


STATUS  OF  PERSONNEL  109 

Selection  of  rare  specialists  needed  by  essential  industries. 

d.  Statistics — Mr.  Stephen  E.  Wright.  Study  and  analysis 
of  reports  and  requisitions  filled  in  order  to  summarize  and 
crystallize  information  regarding  the  needs  of  the  Army  for 
skilled  men  and  the  available  supply. 

IV.  Training  Sub-Section 

Lt.  Col.  Strong  and  Major  Chas.  A.  Abel. 
This    sub-section   was    charged    with    the    maintenance    of 
schools  for  personnel  officers  and  others  engaged  in  person- 
nel work;  it  having  been  recognized  that  officers  or  civilians 
cannot  undertake  this  work  effectively  without  special  training. 

V.  Classification  and  Rating  of  Officers'  Sub-Section 
Col.  Scott,  Mr.  C.  F.  Axelson  and  Mr.  Arthur  U.  Pope. 

This  sub-section  was  charged  with  the  installation  and 
supervision  of  the  rating  scale  for  officers  (including  tabula- 
tion and  analysis  of  ratings)  and  the  preparation  and  use  of 
the  officers'  qualification  cards  (including  maintenance  of 
qualification  card  file). 

VI.  War  Service  Exchange  Sub-Section 

Mr.  Winslow  Russell  and  Mr.  G.  C.  Wells. 
The  War  Service  Exchange  was  charged  with  the  receiv- 
ing of  personal  applications  or  letters  from  men  seeking 
war  service,  and  the  proper  classification  of  such  applications 
and  the  reference  of  the  applicants  to  branches  of  the  national 
service  requiring  their  services.  Following  the  organization 
of  the  Procurement  Section  of  the  Personnel  Branch  of  the 
General  Staff,  the  War  Service  Exchange  functioned  also  as 
Washington's  agency. 

a.  Interviewing — Mr.  Wells  and  Dr.  E.  B.  Holt. 

b.  Demand — Rev.  Alexander  Thompson. 

c.  Supply — Mr.  Harvey  E.  Weeks  and  Mr.  L.  L.  Brown. 

VII.  Administration  Sub-Section 

a.  Forms  and  Publications — Mr.  G.  B.  Hotchkiss. 


no HISTORY  OF  PERSONNEL 

b.  Purchasing — Mr.  M.  M.  Samuels. 

c.  Accounting  and  Auditing — Mr.  I.  B.  Davies  and  Miss 
Dorothy  Hughes. 

d.  Library — Mr.  G.  S.  Pattillo. 

e.  Employment — Miss  Margaret  L.  Free. 

f.  Office  Direction — Mrs.  Gladys  Anthony. 

TRANSFER  BACK  TO  ADJUTANT  GENERAL 

Following  the  conclusion  of  the  armistice  the  routine  con- 
structive work  of  the  Miscellaneous  Section  came  to  an  end. 
All  preparations  were  made  for  the  receipt  of  the  November 
llth  draft  in  the  camps,  but  upon  the  acceptance  of  the 
armistice  this  draft  was  cancelled.  Plans  were  immediately 
prepared  for  the  demobilization  of  the  units  in  camp,  and  this 
duty  devolved  upon  the  Miscellaneous  Section  of  the  Person- 
nel Branch  owing  to  the  fact,  naturally,  that  the  Personnel 
organization  was  in  control  of  the  only  effective  machinery  in 
the  Camps  which  could  assume  charge  of  the  demobilization 
procedure. 

Yet  the  clearing  of  men  out  of  the  Army,  being  largely  a 
matter  of  paper  work,  was  a  duty  functionally  belonging  to 
the  Adjutant  General's  Department  and  in  consequence  of  this 
fact,  a  memorandum  was  issued  on  November  20,  1918,  as 
follows : 

MEMORANDUM  FOR  THE  ADJUTANT  GENERAL: 

Subject:  Transfer  of  Miscellaneous  Section,  Personnel 
Branch,  Operations  Division,  General  Staff. 

1.  You  are  advised  that  by  direction  of  the  Secretary 
of  War  the  personnel  and  functions  of  the  Miscellaneous 
Section,  Personnel  Branch,  Operations  Division,  General 
Staff,  are  hereby  transferred  to  the  control  of  The  Adju- 
tant General. 

2.  Col.  A.  M.  Ferguson,  General  Staff,  Chief  of  this 


STATUS  OF  PERSONNEL 111 

Section,  has  been  directed  to  report  in  person  to  you  with- 
out delay  for  orders. 

HENRY  JERVEY 

Major    General,     General    Staff 

Assistant   to   the   Chief   of   Staff 

Director  of  Operations. 

By 

,   .  P.  P.  BISHOP 
Brigadier  General,  General  Staff 
Chief,   Personal   Branch, 
Operation  Division. 

In  accordance  with  this  order,  all  relations  for  the  present 
between  the  Miscellaneous  Section  and  the  Personnel  Branch 
terminated,  and  the  Miscellaneous  Section  became  functionally 
part  of  the  Adjutant  General's  Department,  assuming  for  the 
purpose,  the  name  of  the  Classification  Division. 

The  organization  of  the  Classification  Division  did  not  differ 
from  that  of  the  Miscellaneous  Section  of  the  Personnel 
Branch.  The  functions  and  the  relationships  continued  as 
theretofore,  with  the  exception  that  the  Chief  of  the  Classi- 
fication Division  reported  direct  to  The  Adjutant  General  of 
the  Army  rather  than  to  the  Chief  of  the  Personnel  Branch 
of  the  Operations  Division  of  the  General  Staff. 

The  effect  of  the  armistice  was  noticeable  at  once  in  the 
work  of  the  Classification  Division.  The  field  work  came  to 
a  stand-still  almost  immediately,  and  the  supervisors  were 
released  again  for  their  duties  in  civil  life,  in  spite  of  the 
fact^hat  it  was  felt  by  many  that  their  services  were  still 
needed  in  a  very  acute  degree,  in  the  coordination  and  super- 
vision of  the  work  in  the  camps.  The  personnel  adjutants 
in  the  camps,  heretofore  charged  with  the  work  of  receiving 
men  and  their  proper  classification  and  placement,  now  found 
themselves  charged  with  the  duty  of  clearing  men  out  of 
camps ;  the  entire  machinery  was  thrown  into  reverse  with 
the  selective  feature  omitted. 

The   work  of  the   Training   Sub-Section   came  to   an   end 


112  HISTORY  OF  PERSONNEL 

almost  immediately,  and  schools  which  had  been  scheduled 
for  personnel  officers  were  cancelled. 

The  Allotments  Branch  continued  for  several  weeks  in  the 
anticipation  of  functioning  in  the  process  of  demobilization 
as  it  was  undetermined  at  that  time  whether  or  not  demobili- 
zation should  be  according  to  industrial  requirements.  Subse- 
quently it  became  apparent  that  demobilization  would  be  by 
military  units  rather  than  by  industrial  needs  whereupon  the 
need  of  the  services  of  the  Allotment  Branch  came  to  an  end. 
In  consequence  the  Allotments  Branch  disappeared  gradually, 
and  retained  only  a  skeleton  organization  to  wind  up  its 
affairs. 

The  War  Service  Exchange  disappeared  almost  overnight. 
There  was  no  further  need  for  it,  and  the  executives  and  their 
clerical  help  were  released  with  the  exception  of  a  skeleton 
staff  retained  to  clear  out  the  files  and  return  the  letters  of 
rcommendation  and  other  valuable  papers  to  those  who  had 
filed  them  with  the  War  Service  Exchange. 

The  section  of  the  Classification  Division  given  over  to  the 
classification  and  rating  of  officers  increased  in  scope  and 
responsibility  after  the  conclusion  of  the  armistice  and  had 
more  floor  space  and  added  personnel  given  to  it  in  order  to 
bring  the  files  of  the  officers  of  the  American  Army  up-to-date 
and  to  enter  the  October  and  January  ratings. 


SECTION  III. 
MAN-ANALYSIS 

In  placing  men  properly  in  any  organization 
three  things  must  be  considered:  the  qualifications 
of  the  man,  the  job  the  man  is  to  do,  and  the  place- 
ment of  the  man  so  that  his  qualifications  match  up 
with  the  requirements  of  the  job.  In  industry  there 
are  in  addition  many  other  factors  to  be  consid- 
ered, such  as  wages  paid,  working  hours,  housing 
conditions,  etc.,  which  do  not  pertain  to  the  Army 
problem.  In  consequence,  one  must  not  think  of 
Army  personnel  work  as  synonymous  with  em- 
ployment management.  The  former  is  a  much 
simpler  problem.  Nevertheless  it  has  sufficient  com- 
plexity to  challenge  the  attention  and  interest  of 
big-minded  men  who  want  to  tackle  a  hard  and  try- 
ing task. 

This  section  deals  with  the  first  main  subdivision 
of  Army  personnel  work,  i.  e.,  man  analysis.  In 
considering  this  subject  the  activities  of  the  person- 
nel system  will  be  viewed  not  so  much  from  an  his- 
torical point  of  view  as  from  that  of  tracing  the 
gradual  solution  of  the  problems  encountered  by 
the  system. 

Army  personnel  work  is  based  upon  a  frank 
avowal  that  men  have  individual  differences  and 
these  differences  must  be  taken  into  account  if  the 

113 


114  HISTORY   OF   PERSONNEL 

Army  would  utilize  its  men  to  greatest  advantage. 
Chapter  10  is  primarily  concerned  with  the  two 
problems:  first,  how  shall  individual  differences  be 
measured?  and  second,  what  do  the  differences 
mean?  Both  of  these  questions  are  fundamental  to 
any  actual  utilizations  of  the  fact  of  individual  dif- 
ferences. [  Several  contributions  in  this  field  are  re- 
corded which  may  well  benefit  society  at  large  even 
in  greater  measure  than  they  have  the  Army.] 
In  Chapter  11  the  development  of  the  Qualification 
Card  is  traced  particularly  in  the  light  of  the  prob- 
lems raised  in  the  preceding  chapter.  The  operation 
of  this  classification  of  enlisted  men  is  finally  de- 
scribed in  the  last  chapter  of  the  section — Chapter 
12. 


CHAPTER  10 

SOURCES  OF  INFORMATION  AS  TO  A  MAN'S 
QUALIFICATIONS 

THE  NEED  FOR  MAN-ANALYSIS  IN  THE  ARMY 

As  an  illustration  of  the  need  for  personnel  work  consider 
this  case.  In  June,  1918,  there  was  no  real  centralized  per- 
sonnel system  for  enlisted  men  in  the  Department  of  Military 
Aeronautics.  In  consequence,  enlisted  men  were  handled 
for  the  most  part  as  just  so  many  men.  From  one  of  these 
fields  twenty-five  men  were  shipped  as  privates  to  France  in  a 
casual  detachment.  They  were  to  serve  in  France  in  no  special 
way.  Among  the  twenty-five  men  was  a  gauge  and  tool-maker 
of  ten  years'  experience  who  had  last  worked  for  the  Westing- 
house  Company  on  the  manufacture  of  rifles  and  had  earned 
$40  a  week.  A  second  had  been  a  construction  foreman  for 
the  B.  &  O.  R.  R.  for  eight  years,  earning  $50  a  week.  He 
had  handled  as  high  as  320  men  at  a  time.  A  third  man  in 
this  lot  of  twenty-five  was  a  marine  engineer  with  four  years' 
experience  in  the  Boston  Navy  yard,  earning  $40  a  week. 
Here  he  had  had  a  general  training  in  the  repair  of  ship 
engines.  Prior  to  this  he  had  had  experience  in  drafting  and  as 
a  machinist  with  two  years'  technical  training  as  a  back- 
ground. Undoubtedly  such  men  were  of  value  as  privates  to  the 
Department  of  Military  Aeronautics.  But  how  much  more  valu- 
able would  they  have  been  to  the  Army  and  nation  in  winning 
the  war,  if  the  first  one  had  been  used  in  a  munitions  plant 
in  manufacturing  rifles,  the  second  in  a  railroad  engineer 
regiment  and  the  third  as  an  engineer  or  assistant  engineer 
in  one  of  the  new  boats  of  the  Emergency  Fleet  Corporation! 

About  November  1st,  1917,  the  following  requisition  for 

115 


116  HISTORY  OF  PERSONNEL 

men  was  received  from  General  Pershing.     Freight  cars  had 
been  shipped  to  France  for  his  use  but  no  workmen  had  been 
sent  to  erect  the  cars  upon  their  arrival.    The  need  for  their 
use  was  great. 
Number    Occupation 

20        Buckers-Up — Experienced   in  car  riveting  work  with  gen- 
eral knowledge  of  pneumatic  tools. 
4        Car  Builders — General  workers  on  wooden  cars. 
10        Car  Deckers — For  laying  floors. 

12        Car  Fitters — Bolters  up  of  steel  frame  work  for  riveting. 
15        Car  Riveters. 

4        Carpenters — General  good  wood  workers. 
4        Checkers — Men  who  handle  stock  materials  and  record  its 

application  to  cars. 
6        Clerks— General. 
4        Door  Hangers. 
2        Electricians  or  Wiremen. 
2        Electricians  or  Helpers. 

4        Engineers,  Power  House — To  operate  200  horse-power  gaso- 
line  engine   and   generators. 
4         Engineers,  Yard  Crane — Locomotive  type. 
4        Firemen,  Yard  Crane. 
6        Inspectors,  Car — Experienced  on  new   car   work.    Able  to 

read  prints. 

4        Machinists — Erecting  Men 
2         Machinists — Pneumatic  tool  repairmen. 
23         Painters. 
2        Pipe  Fitters. 
2        Pipe  Fitters'  Helpers. 
6        Rivet  Heaters. 

18  Roofers— Car. 
1        Stencil  Cutter. 
4        Stenographers. 

19  Side   and   End   Liners — Experienced   in   putting   sides   and 

ends  of  cars  onto  the  steel  frame  work. 
6        Trimmers — Experienced  in  applying  brake  steps,  grab  irons, 

door  handles,  etc. 
18        Truck  Builders. 

206 


SOURCES  OF  INFORMATION  117 

Can  one  estimate  in  dollars  and  cents  the  advantage  to  the 
Army  as  a  whole  if  such  men  could  be  quickly  and  accurately 
discovered  and  shipped  to  France?  This  is  what  the  person- 
nel system  has  done. 

Another  example  was  reported  by  a  personnel  supervisor, 
as  follows: 

"When  I  first  visited  the  Post,  I  found  that  the  .  .  .  .th 
Artillery  Regiment  had  been  organized.  My  information 
is  that  over  three  months  were  required  to  form  the  orga- 
nization and  during  that  time  sixty  per  cent  of  the  men 
had  to  be  transferred  either  within  or  out  of  the  regiment 
because  they  were  riot  fitted  for  the  places  they  were 
filling.  After  the  regiment  finally  was  completed  and 
had  left,  there  were  numerous  'comebacks'  about  the 
men's  papers  and  records,  caused  largely  by  the  number 
of  transfers.  During  these  three  months  the  entire 
clerical  force  at  Headquarters  was  kept  busy  on  this  one 
job. 

"The  Commanding  Officer,  the  Adjutant,  and  the  Per- 
sonnel Officer,  now  appreciate  the  possibilities  of  person- 
nel work,  with  the  result  that  the  system  has  been  effi- 
ciently followed  ever  since  it  was  started  in  April. 
Recruits  are  carefully  interviewed  and  records  properly 
kept. 

"In  May  they  received  information  that  a  regiment 
would  be  organized  within  the  Post.  The  qualifications 
of  the  men  were  balanced  against  the  Tables  of  Occupa- 
tional Needs  for  a  Heavy  Field  Artillery  Regiment,  with 
the  result  that  when  the  formal  orders  were  issued, 
creating  the  .  . .  .th  Regiment  of  Heavy  Field  Artillery, 
95%  of  the  men  were  picked  and  transferred  to  the 
regiment  in  five  days.  After  this  there  were  less  than 
six  per  cent  of  transfers  affecting  the  regiment,  and  most 
of  these  were  of  men  going  into  the  regiment  to  fill 
vacancies,  and  less  than  one  per  cent  were  of  men  trans- 
ferred within  the  regiment  because  of  being  improperly 
placed.  This  regiment  boarded  the  transport  for  Over- 
seas Service  with  the  remark  by  its  Commanding  Officer 
that  it  was  the  best  organization  of  its  kind  that  he  had 
ever  seen.  While  it  was  being  organized,  the  same  cleri- 
cal force  attended  to  the  work  incidental  to  the  selection 
and  transfer  of  four  other  detachments  comprising  a  little 


118  HISTORY  OF  PERSONNEL 

over  1,000  men,  with  everything  running  smoothly  and  no 
'comebacks'  later  on. 

"To  summarize:  By  use  of  the  CCP-1  cards  (soldiers' 
qualification  cards),  and  Tables  of  Occupational  Needs, 
a  better  regiment  was  organized  in  one-half  the  time,  by  a 
smaller  force,  with  no  incidental  confusion  and  no  'come- 
backs.' " 

According  to  records,  1,100,000  men  were  requisitioned  from 
camps  on  the  basis  of  their  inventories  of  skilled  men  and 
transferred  to  other  camps  or  to  France  where  units  needing 
such  men  were  in  course  of  organization.  In  addition  to  these 
1,100,000  transfers  there  were  certainly  an  equal  number  more 
of  transfers  that  were  ordered  made  between  units  in  the  same 
camp  of  which  there  are  no  record.  Think  of  the  difficulties 
incident  to  the  proper  placements  of  such  enormous  numbers 
of  men  in  the  light  of  the  machinery  that  had  been  in  vogue 
in  the  Regular  Army  before  the  war  and  which  was  considered 
good  enough  for  all  needs  in  the  great  emergency.  It  is  here 
repeated  in  practically  the  words  of  one  of  the  leading  officers 
of  the  Army.  "The  old  system  of  finding  out  about  men  was 
quite  sufficient.  If  a  Captain  wanted  to  know  how  many 
carpenters  there  were  in  his  Company,  he  would  simply  say, 
'All  those  who  are  carpenters  step  forward'.  Thereupon  the 
carpenters  were  known  and  no  paper  work  was  required." 

Today  there  are  recognized  four  principal  methods  of  esti- 
mating a  man's  worth  and  usefulness:  his  record  of  achieve- 
ment, his  rating  in  special  tests,  the  estimate  of  the  man 
himself  and  of  others  acquainted  with  him,  and  his  physical 
conditions.  Each  of  these  will  now  be  discussed  in  some 
detail. 

RECORD  OF  ACHIEVEMENT 

The  man's  record  of  achievement  can  be  subdivided  into: 
first,  his  occupational  history;  second,  his  education;  third, 
his  leadership  experience;  and  fourth,  his  military  history. 

Occupational  History.  The  experience  of  the  Army  has 
been  that  a  very  reliable  statement  of  what  the  man  has  done 


SOURCES  OF  INFORMATION  119 

in  an  occupational  way  can  be  obtained  when  he  is  properly 
interviewed.  According  to  personnel  procedure  a  complete 
record  of  just  what  he  had  done  from  the  time  he  left  school 
until  he  entered  the  Army  was  recorded  first  of  all  in  the 
form  of  notes  on  a  pad.  After  the  interviewer  was  satisfied 
he  had  a  complete  statement,  he  determined  what  was  the 
man's  main  civilian  occupation  and  then  filled  in  the  space  on 
the  Qualification  Card  (see  Figure  1,  pages  120,  121,  as  to 

(1)  Name  of  main  occupation. 

(2)  Details  of  just  what  he  did  at  that  job. 

(3)  Years  of  experience. 

(4)  The  Army  symbol.     For  example,  carpentry  was  sub- 
divided into  22  subdivisions,  i.e.,  block  maker,  pulley,  8  bl; 
boat   carpenter,   8b;   bridge,   timber   carpenter,   8br;   cabinet 
maker,  8cb;  etc. 

(5)  Interviewer's   estimate  of  his   skill   at  the  trade,   ex- 
pressed  as   apprentice,   journeyman,  or   expert.      (Skill  less 
than  that  of  an  apprentice  was  ignored  as  not  of  sufficient 
value  to  warrant  transferring  a  man  on  that  basis). 

(6)  Firm  worked  for. 

(7)  Department,  Shop  or  Branch. 

(8)  Kind  of  business  (the  industry;  e.  g.,  shipbuilding,  tex- 
tile, etc.) 

(9)  Address  of  Firm. 

(10)  Weekly  Wages. 

Items  1-5  and  10  were  recorded  similarly  for  the  2nd  best 
and  3rd  best  occupations  and  occasionally  the  4th  best. 

Experience  derived  from  interviewing  between  3,000,000 
and  4,000,000  men  brought  about  steady  improvement  along 
two  different  lines.  The  first  was  to  secure  greater  and  greater 
detail  as  to  just  whnl  the  man  did.  The  second  was  to  train 
interviewers  in  their  work. 

Comparison  of  the  first  Qualification  Record  Card  actually 
used  (see  Figure  2,  pages  124,  125),  with  the  last  one  used  in 
the  Army  (See  Figs.  10,  11,  Vol.  II)  shows  very  clearly  this 
increased  emphasis  upon  the  details  of  what  the  man  had  done. 


120 


HISTORY  OF  PERSONNEL 


iiiiiiimiiiimi 


NOiivDunvno  .syaiaios  .j^-it, 


SOURCES  OF  INFORMATION 


121 


nn 

ID 


RM 

lijM 

!  (^ 


I 
1  a 


j 

•2 

3ti 

Til   s 

-B"    1 

1 1 

•d-? 


i  I 


MV 


in  I 

:      8  :   :   i 
•      3 


B    T 
<OO 

2ss  a  sas 


.3. 

CD 


03      CO 


>  !  !  !  ! 


i 

O" 


it  «  c-fl  _—  C-" 

w  v  8  a  O  «  P*a 

jilliii] 


122  HISTORY  OF  PERSONNEL 

For  the  first  card  ignores  the  item  entirely,  and  there  was  no 
thought  in  September,  1917,  of  subdividing  trades  except  into 
the  49  main  groups  listed  upon  the  card.  By  October,  1917, 
however,  the  necessity  of  such  details  had  been  recognized  and 
the  edition  of  October  20  gives  two  lines  to  this  item.  There- 
after there  was  a  steady  increase  in  emphasis  upon  it,  until 
in  the  edition  of  November  1,  1918,  (never  actually  used; 
see  Figs.  10,  11,  Vol.  II),  a  total  of  eight  lines  was  devoted 
to  this  item  covering  the  main  occupation,  the  2nd  best  and 
the  3rd  best. 

Strangely  enough  the  importance  of  recording  the  details 
as  to  the  2nd  and  3rd  best  occupation,  did  not  appear  until 
the  February  1,  1918  edition.  Before  that  date  such  informa- 
tion was  recorded  only  to  the  extent  of  underlining  the  occu- 
pations as  listed,  once  for  apprentice  skill,  twice  for  journey- 
man skill.  From  then  on  until  the  November  1st  edition 
there  was  no  change  in  this  respect. 

From  the  very  beginning  it  was  planned  to  divide  all  the 
men  into  three  groups  with  respect  to  their  main  occupation ; 
first,  those  with  very  little  experience ;  second,  apprentices ; 
third,  journeymen  and  experts  grouped  together.  This  divi- 
sion has  been  maintained  throughout  almost  without  change. 
Dating  from  the  February  1  edition  of  the  card,  a  fourth 
group,  i.e.,  the  experts,  was  recognized  as  distinct  from  jour- 
neymen. But  it  has  played  but  small  part  in  the  system. 

The  method  of  determining  whether  a  man  belonged  to  one 
group  or  another  has,  however,  changed  very  markedly.  At  the 
beginning,  the  interviewer  underlined  the  occupation  in  the 
list,  once  for  apprentice  skill,  twice  for  journeyman  skill. 
After  the  man  had  been  interviewed,  a  classifier  read  over 
the  card  and  made  the  estimate.  This  was  shown  for  an 
apprentice  by  affixing  an  orange  celluloid  tab  to  the  top  of 
the  card  directly  over  the  index  number  corresponding  to  his 
trade.  In  the  same  way  a  green  tab  was  used  for  a  journey- 
man. For  example,  if  a  man  was  an  apprentice  draftsman  and 
a  journeyman  carpenter,  an  orange  tab  was  affixed  at  29  and 


SOURCES  OF  INFORMATION  123 

a  green  tab  at  8.  Dating  from  the  February  1  revision,  the 
interviewer  was  called  upon  to  record  his  estimate  of  the 
man's  skill  by  circling  one  of  the  three  letters,  "A.,"  "J."  and 
"E."  This  forced  him  to  do  better  interviewing  as  he  had  to 
secure  sufficient  details  to  enable  him  to  make  such  a  judg- 
ment. The  classifier  would  then  revaluate  the  card.  Dis- 
crepancies in  their  estimates  were  utilized  as  the  basis  for 
discussion  at  regular  conferences,  as  a  result  of  which  there 
came  about  better  and  better  interviewing  and  classification. 
In  May,  1918,  trade-tests  (see  chapter  30  for  details)  were 
introduced  into  Army  camps.  On  the  basis  of  these  actual 
try-outs  of  a  man's  skill,  he  was  judged  a  novice,  apprentice, 
journeyman,  or  expert.  This  was  recorded  in  an  appropriate 
space  on  the  card  (See  June  1,  1918  edition,  Figure  1.)  The 
classifier  was  still  looked  upon,  however,  as  one  who  was  privi- 
leged to  grade  the  man  for  example,  as  journeyman,  if  his 
judgment  dictated  such  a  classification,  even  if  the  interviewer 
and  trade-tester  had  both  graded  him  apprentice.  But  actu- 
ally the  trade-test  determined  the  rating  of  the  man's  skill 
in  practically  every  case  where  it  was  used.  (Further  discus- 
sion of  classifying  and  tabbing  cards  is  presented  on  pages 
109  to  115,  Volume  II). 

A  further  improvement  in  recording  the  man's  occupational 
history  appears  in  the  sub-division  of  occupations  and  the 
requirement  that  interviewers,  trade  testers  and  classifiers 
assign  the  men  to  definite  sub-divisions.  At  first  carpenters 
were  either  apprentice  or  journeyman  carpenters.  No  dis- 
tinction was  made  between  bridge  carpenters  and  cabinet 
makers  so  far  as  the  classification  of  the  men  went.  In  prac- 
tice it  was  not  so  bad  as  it  sounds,  for  if  a  requisition  for 
cabinet  makers  or  railroad  car  carpenters  was  received,  the 
cards  of  all  carpenters  would  first  of  all  be  taken  from  the 
file  and  then  the  descriptive  matter  on  each  card  would  be 
read  over  in  order  to  discover  the  cabinet  makers  or  railroad 
car  carpenters.  Thousands  of  men  were  properly  selected  in 
this  manner,  but  many  others  were  not  selected  so  well.  This 


124                 HISTORY  OF  PERSONNEL 

V    OD 

S 

> 

. 

m 

|                 ~      '-           S    6 

e 

„      U                         S     jc       u 

. 

•3 

o,  y. 

i?  i  'rt-  ,|i  j 

i  g  1  £  i  §  &  •§ 

^  M  O-  8  69  VI  F*  A 

II 

u 

G& 

S  X  £  C        a      6      •  O  8  •  H  ff 

I 

^.coooodoj     o.<io 

o     5 

j 

y  5 

•j^in^            4         4      ••«   <c>     it    it   ej     a 

°  N> 

5*  1    «1  *i 

X 

=     -fc 

II 

i             t      S        S 

'«  '1 

«S 

*J 

^  s.        a    «  t  .5           E 

a^ 

8 

>.      ^         •    *C  a     X    4 

?r 

e 

V       T 

•s  *s  e  t£  4  I 

i  ° 

s  . 

E 

X 

CO 

s  |?  '|  .„  a  |  4 

el 

r    ' 

:      * 

g'B'-^CS^^^O*'                S"*< 

s  r* 

*3 

i          <  s    <  <3    K  a 

y 

>    b 

'       Q 

•    H    •*         3    C       S    S   A              V.    u. 

c 

«     A        44        *    id 

•j            0«       «              0 

o      -      ~-          n-      ri         ^     4    «             vi    «i 

r 

'& 

i   f     ;  *o 

E 

O 

h 

_ 

1 

1 

S            It"                 S 
g.     -o  E  S      r     c        3 

a     *J 

w    ^ 

i 

*        V 

.e          '     k  «  1  J        I        E-I          1 

pj 

1          -b  t  «  «  «    's  I 

*  2 

t  e  ? 

;  i  -s 

3 

0 

j            £  £  33  H     H.S 

ii  1 

J3      *• 

5  u 

o     Sou 

y    c  .5    j,  "«.S   tJ  ™  2    S  o  ^   a      "5 
o^«.-p^0u«i;--j=        o        c 

1        1 

'S 

^M                      '*" 

^    00 

•> 

'   2   = 

=':::??"    t'tt'is?    8     5 

O 

'    •«                     !              1            S 

;  S 
i  S               1 

r»                      B 

Ls           1       «j    | 

i  S              §, 

03 

>: 

1 
| 

Oij 

i 

1 

^H      i    l!,]R 

|c                                           ifflC 

M             "!il|j 

g  **"                                      .£    S     S  •-    g 
>>  «         [                                   2     >.        a 

.     ^^ 
(N     ^ 

2  T 

1 

;    M                                       '-        « 

^1-7-          «     a 

H 
•H 

A 

a 
o" 

«l 

•s  -s                   1  ««  J  i  I 

is               ?-s<  -i 

:    S              Pi  E              -a       H      O 

,-g       g.I  «    j^    3  a 

w  !   o?            -HO 

H 

0) 
«H 

« 

c 

o 

.s|  •{              *  ill 

.2 

..   £          oj.2  -H      |     CM   -P 

«H 

.ti 

.s  -S    gi                      !»  >   2  "I  .s 

e3 

cri 

a 

£•    i*                                                 •*•     **    c  *o 

a 

i  -                            •£  §   5  "-S 

go                                                      EL    9  *9 

>,J                                           B             K    A    B 

g 

i™i2        5^     >S    _g    ^ 

^ 
— 

31* 

ro:  "^*  **             e 

1 

»    o         -                               1  •£   -g    «  "f 

-1  «         ^1  1     1      S      c 

a 

rt1!   i               J  !|  -s  1 

Jj 

wi  «  ^.    x    s 

* 

x 

•             B                                  S    "^           >    ** 

!  ^        a1-3    §     &    - 

-JS 

•SBU                    s  8  *  g  1 

"9 

1      «     1     1    '§    ^     5 
"         z6izta<^ 

j»    «       >-"                           •£  .2    Jj  .2  -c 

•56   S              JJJIS 

o     >•    o 

Q                 1      1              S  -S  g-S 

1 

^'6-WOOOI-l-dDD  -N  —J 


SOURCES  OF  INFORMATION 


125 


126  HISTORY  OF  PERSONNEL 

method  threw  upon  the  file-clerks  the  task  of  determining 
ability,  rather  than  upon  the  classifier,  whose  special  duty  it 
was  to  do  just  this.  On  October  20,  1917,  the  first  index  of 
occupations  appeared.  It  contained  in  addition  to  the  49  main 
occupations,  37  supplementary  occupations  and  these  86  main 
groups  were  sub-divided  into  165  sub-divisions.  Each  sub- 
division was  given  a  code  letter,  for  example, 

8.  Carpenter    at 

Boat  Builder    y 

Carriage    Maker     av 

Form    Carpenter    cy 

Saw    Filer    j  1 

Wagon    Maker    mg 

67.  Chemical   Industry   Worker bb 

Etc. 

Instructions  were  issued  to  classify  men  under  these  165 
sub-divisions  and  to  record  at  the  top  of  the  card  next  to  the 
tab  the  appropriate  code  letters.  In  this  way  when  such 
sub-divisions  as  boat  builders,  were  required,  cards  tabbed  at 
8  could  be  quickly  inspected  and  only  those  cards  with  the 
letter  "y"  beside  the  tab  would  be  considered.  This  scheme 
was  put  into  operation  in  only  a  few  camps,  largely  because 
of  the  difficulty  of  remembering  the  meaning  of  the  symbols. 
On  February  1,  proof  of  what  was  then  on  hand  of  a 
rather  complete  index  of  Army  occupations  was  issued.  This 
index  listed  50  main  occupations  and  45  supplementary  ones 
with  a  total  of  575  sub-divisions.  A  new  code  system  was 
introduced,  made  up  of  a  number  and  letter  or  letters,  the 
letters  in  each  case  being  suggestive  of  the  occupation.  For 
example: 

Carpenters    8 

Boat    8b 

Bridge    (Timber)     8br 

Cabinet    Maker 8cb 

Car    Decker    8cr 

Etc. 


SOURCES  OF  INFORMATION  127 

This  mnemonic  device  was  immediately  taken  up  by  the  men 
in  the  personnel  offices  and  shortly  after  a  bridge  carpenter 
was  referred  to  almost  generally  as  "8br."  But  the  symbols 
were  not  placed  at  the  top  of  the  cards  to  any  great  extent. 

On  the  June  1  edition  of  the  qualification  card  appeared  for 
the  first  time  a  definite  place  for  the  symbols  (see  page  120). 
Thereafter  they  were  used  universally.  The  interviewer  was 
required  to  record  under  what  sub-division  of  an  occupation 
the  man  should  be  put  and  how  good  he  was  at  it.  This 
resulted  not  only  in  having  the  facts  recorded  but  also  in 
a  decided  improvement  in  the  interviewing  as  it  forced  a  com- 
plete statement  of  just  what  the  man  had  done  in  order  to 
make  the  classification. 

Education.  In  recounting  a  man's  achievements,  we  have 
besides  his  occupational  history,  his  education  to  consider. 
The  first  qualification  card  to  be  used  (see  page  125)  called 
for: 

Grade  reached  (last  reader  used)  in  school 

Years  in  High  School Did  you  graduate  ? 

Years  in  College Did  you  graduate  ? 

Subjects  of  specialization 

Years  in  Technical  School ....  Did  you  graduate  ? 

Name  course  pursued 

Years  in  Trade  or  Business  School 

Name  course  pursued 

A  month  and  a  half  later,  the  new  revision  called  in  addition 
for  the  name  of  the  College,  the  Technical  School,  and  the 
Trade  or  Business  School.  So  much  confusion  had  arisen 
because  interviewers  did  not  know  the  nature  of  an  educational 
institution  and  so  were  crediting  "years  in  college"  for  a 
business  college,  etc.,  that  this  measure  became  imperative.  No 
further  changes  were  made  except  to  reorganize  the  arrange- 
ment for  the  space  devoted  to  this  subject  (see  page  121). 

The  February  1  revision  included  space  for  the  first  time 
for  "Army  Training  School  Certificates,  etc."  No  change 
was  made  in  this  item  until  the  June  1  revision  when  the  space 
was  doubled  and  information  was  called  for  as  to  location  of 


128 HISTORY  OF  PERSONNEL 

school,  weeks  spent  at  school,  whether  man  graduated  or  not, 
the  nature  of  the  course,  and  the  rating  in  terms  of  apprentice, 
journeyman  or  expert.  There  were  three  kinds  of  schools  to 
which  this  space  was  devoted.  First  pre-enlistment  courses 
conducted  by  the  Federal  Board  for  Vocational  Education; 
second,  post-enlistment  but  pre-service  courses  conducted  by 
the  Committee  on  Education  and  Special  Training;  and  third, 
army  courses  to  which  soldiers  were  detailed  as  an  integral 
part  of  their  training.  Such  courses  gave  instruction  in  wire- 
less telegraphy,  horseshoeing,  auto  repair,  etc.  Certificates 
were  furnished  students  in  the  first  two  types  of  courses  as 
to  their  proficiency  and  it  was  data  taken  from  these  certifi- 
cates that  was  recorded  in  this  space.  Due  to  a  lack  of  a 
thorough-going  standardization  of  instruction  or  manner  of 
expressing  the  results  obtained  by  the  students,  a  great  deal 
of  trouble  was  experienced  in  classifying  the  graduates  to 
the  satisfaction  of  the  students,  their  instructors  and  the  Army 
personnel  system.  As  far  as  possible,  however,  such  students 
were  assigned  to  units  where  their  training  could  be  put  to 
use.  (See  telegram  of  March  23,  1918,  from  A.  G.  O.)  In- 
formation as  to  graduation  from  the  third  type  of  instruction 
was  much  more  difficult  to  handle  as  the  men  were  constantly 
attending  such  schools  and  division  or  camp  headquarters  was 
ordinarily  not  notified.  As  early  as  February  12  it  was  recog- 
nized that  such  information  should  be  secured  and  in  one 
division  orders  were  issued  requiring  instructors  in  charge  to 
report  to  the  personnel  officer. 

Ability  to  speak  foreign  languages  was  called  for  on  the 
first  card.    The  information  desired  was : 

Do  you  speak  French  well? German? 

Any  other  language?    


The  wording  of  the  first  question  was  changed  in  the  Febru- 
ary 1  revision  to  "Can  you  carry  on  a  conversation  in  French?" 
This  was  done  in  the  expectation  of  eliminating  all  but  those 
who  could  actually  speak  fluently  in  the  foreign  tongue.  In 


SOURCES  OF  INFORMATION  129 

the  June  1  edition  this  was  revised  to  provide  space  for 
"fairly  well"  and  "fluently."  Just  before  this  change  a  sur- 
vey had  shown  that  only  10%  of  those  claiming  ability  in 
French  and  but  40%  in  German  could  really  speak  well 
enough  to  act  as  interpreters.  Following  this  disclosure  most 
personel  offices  established  the  custom  of  checking  all  state- 
ments as  to  language  ability  through  the  use  of  interviewers 
who  could  speak  the  language.  At  one  time  one  office  main- 
tained interpreters  in  26  languages. 

Commencing  with  the  February  1  revision,  the  cards  of 
men  unable  to  speak  English  (non-E),  or  who  were  illiterate 
(L),  were  checked.  Such  men  were  not  assigned  important 
positions.  To  some  extent  also  they  were  assigned  to  com- 
panies where  they  could  secure  training  in  speaking  English. 
But  most  of  this  latter  function  was  handled  as  a  company 
matter. 

To  what  use  was  all  this  information  concerning  education 
and  languages  put?  The  amount  and  kind  of  schooling  was 
utilized  mainly  as  background  information  as  to  how  good 
the  man  probably  was  at  his  civilian  trade.  The  presence 
of  technical  training  always  counted  in  favor  of  the  man's 
experience.  Its  absence  also  counted  against  him.  For 
example,  a  "civil  engineer"  with  no  schooling  above  grammar 
school  was  scrutinized  most  carefully  before  being  recorded 
as  more  than  a  surveyor.  Besides  serving  in  a  background 
way,  high  school  or  college  graduates  were  very  frequently 
selected  when  men  of  leadership  ability  were  called  for. 

It  has  already  been  explained  that  students  in  the  Army 
Training  Schools  were  assigned  as  far  as  possible  to  units 
where  their  training  could  be  utilized.  In  the  case  of  foreign 
language  ability,  we  have  a  situation  directly  comparable  to 
occupational  ability.  Requisitions  from  the  War  Department 
for  men  who  could  speak  French  were  frequent.  And  as  far 
as  possible  men  who  could  speak  French  and  German  were 
distributed  so  that  each  company  would  have  one  of  each.  But 
there  were  far  too  few  such  linguists  to  accomplish  much 


130  HISTORY  OF  PERSONNEL 

along  this  line.  The  system  of  classifying  linguists  was  not 
upon  their  ability  to  speak  the  language  but  upon  their  ability 
to  act  as  interpreters.  As  a  good  interpreter  must  speak  and 
write  both  languages  and  be  fairly  intelligent  and  well- 
educated,  foreigners  were  not  tabbed  unless  they  knew  Eng- 
lish. They  were  green  tabbed  at  52  for  French,  53  for 
German,  and  54  for  other  languages  if  they  knew  both  lan- 
guages and  had  had  some  high  school  work  or  its  equivalent. 
They  were  orange  tabbed  if  they  spoke  both  languages  but  had 
had  less  education. 

Leadership  Experience.  The  first  card  carried  the  state- 
ment, "Describe  the  job  or  enterprises  in  which  you  exercised 
the  greatest  authority  or  leadership;  such  as  foreman,  mana- 
ger, captain,  etc.,"  with  four  lines  for  the  answer.  The  space 
was  cut  to  three  lines  in  the  October  20  revision  and  to  one 
line  in  the  February  1  revision.  During  the  first  few  months 
the  answer  to  this  question  was  found  of  very  great  value  as 
it  recorded  the  most  important  thing  the  man  had  done  in  the 
way  of  leadership.  When  the  space  carried  such  statements 
as  "Taught  Sunday  School  class  of  8  boys,"  or  "Managed 
farm,  2  laborers,"  one  did  not  select  the  man  for  a  job  calling 
for  leadership  qualities.  In  the  last  few  months  this  space 
was  largely  ignored  for  leadership  information,  the  psycho- 
logical intelligence  rating  having  largely  taken  its  place  in 
this  respect.  The  fact,  however,  that  the  November  1,  1918 
revision  provides  two  lines  of  space  for  the  information  and 
it  is  still  retained  on  the  face  of  the  card  is  positive  proof  of 
its  very  great  value  in  aiding  the  classifier  properly  to  evalu- 
ate the  man. 

The  first  card  provided  that  leadership  should  be  tabbed 
at  50.  The  second  card  (Oct.  20)  eliminated  this  feature, 
substituting  construction  foreman  ;instead.  Leadership  is 
hardly  a  primary  quality  and  only  primary  qualities  should  be 
tabbed.  If  one  wants  a  boss  carpenter,  he  will  first  of  all 
"pull"  all  carpenters  tabbed  at  8,  and  then  go  over  the  cards 
to  find  that  one  with  the  greatest  boss  experience.  But  he 


SOURCES  OF  INFORMATION  131 

would  not  first  of  all  select  "leaders"  and  then  look  for 
carpenters.  It  was  found  that  this  was  universally  the  case. 

There  is  no  question  that  the  majority  of  men  who  have 
shown  leadership  ability  in  civil  life  made  good  as  leaders  in 
the  Army  in  the  United  States.  Experience  at  the  front  has 
demonstrated,  on  the  other  hand,  that  many  men  judged  in 
terms  of  past  performance  fail  at  the  crucial  moment  and  that 
often  a  man  who  has  never  before  shown  any  aptitude  for 
leadership  assumes  command  in  time  of  emergency.  The  world 
has  much  to  learn  before  leaders  may  be  selected  with  any 
high  expectation  of  ultimate  success. 

Military  History.  The  fourth  record  of  achievement  is  that 
of  military  experience.  Information  of  that  sort  was  called 
for  on  the  first  card  under  the  caption  "Outline  any  previous 
military  experience  you  have  had,  giving  grade,  period  of 
service  and  organization,"  and  four  lines  of  space  was  reserved 
for  the  information.  Military  experience  was  to  be  tabbed  at 
54,  but  that  was  eliminated  on  February  1.  At  the  same  time 
the  space  devoted  to  this  subject  was  cut  to  two  lines.  Exper- 
ience has  shown  that  this  information  is  little  used  by  a  camp 
or  division  personnel  officer.  And  it  is  a  fair  question  whether 
space  should  be  devoted  to  it  on  the  card.  The  company 
commander  has  the  information  in  the  Service  Record  and 
discovers  the  fact  as  soon  as  the  recruit  appears. 

Another  phase  of  military  history  has  reference  not  to  the 
man's  military  experience  before  entering  the  Army  but  after 
he  has  been  in  the  Army  some  time.  Provision  for  recording 
this  was  made  on  the  June  1  revision  of  the  card.  Twenty-six 
army  specialties  were  listed  and  a  system  of  tabbing  provided 
to  indicate  proficiency  in  them.  As  request  for  this  innovation 
came  from  France  it  was  assumed  that  it  would  be  used  in 
the  Expeditionary  Forces.  So  far  no  reference  to  its  use  in 
any  way  has  been  received  at  Washington. 

Conclusion:  Record  of  Achievement.  The  four  sub-divisions 
of  his  previous  record;  occupational  history,  education,  capa- 
city for  leadership,  and  military  career  have  been  reviewed. 


132  HISTORY  OF  PERSONNEL 

The  Army  experience  has  been  that  the  facts  can  be  ascer- 
tained if  trained  interviewers  are  employed.  And  that  experi- 
ence has  demonstrated  the  great  value  of  knowing  and  utiliz- 
ing all  this  information — the  first  three  items  by  the  personnel 
officer  and  the  fourth  by  the  company  commander,  if  not  by 
the  personnel  officer. 

THE  SOLDIER'S  SCORE  IN  SPECIAL  TESTS 

It  will  be  recalled  that  four  principal  methods  of  estimating 
a  man's  worth  and  usefulness  were  set  forth.  His  record  of 
achievement  has  been  discussed  and  the  second — his  score 
in  special  tests — is  now  before  us  for  consideration.  Two 
such  tests  were  used,  one  to  test  his  general  intelligence  and 
the  other  to  test  his  ability  in  a  specific  trade. 

Intelligence  Tests.  These  tests  are  discussed  at  some  length 
in  Chapter  X  of  Vol.  II  and  it  is  sufficient  to  state  here  that 
in  each  camp  a  Psychological  Examiner  was  stationed,  com- 
missioned in  the  Medical  Department.  All  soldiers  were 
given  the  tests  and  as  a  result  were  graded  either  "A," 
"B,"  "C-f ,"  "C,"  "C— ,"  "D,"  "D— ,"  or  "E."  "E"  men, 
including  approximately  one-half  of  one  per  cent  of  the 
recruits,  were  ordinarily  discharged.  The  meaning  of  the 
letter  ratings  is  as  follows: 

A.  Very  Superior  Intelligence.     This  grade  is  earned  by 
only  four  or  five  soldiers  out  of  a  hundred.     The  "A"  group 
is  composed  of  men  of  marked  intellectuality.     Such  men  are 
of  high  officer  type  when  they  are  also  endowed  with  leader- 
ship and  other  necessary  qualities. 

B.  Superior  Intelligence.     "B"  intelligence  is  superior,  but 
less  exceptional  than  that  represented  by  "A."     The  rating 
"B"  is  obtained  by  eight  to  ten  soldiers  out  of  a  hundred.    The 
group  contains  a  good  many  men  of  the  commissioned  officer 
type  and  a  large  amount  of  non-commissioned  officer  material. 

C+.  High  Average  Intelligence.  This  group  includes  about 
fifteen  to  eighteen  per  cent  of  all  soldiers  and  contains  a  large 
amount  of  non-commissioned  officer  material  with  occasionally 


SOURCES  OF  INFORMATION  133 

a  man  whose  leadership  and  power  to  command  fit  him  for 
commissioned  rank. 

C.  Average  Intelligence.     Includes   about  twenty-five  per 
cent  of  soldiers.    Excellent  private  type  with  a  certain  amount 
of  fair  non-commissioned  officer  material. 

C — .  Low  Average  Intelligence.  Includes  about  twenty  per 
cent.  While  below  average  in  intelligence,  "C — "  men  are 
usually  good  privates  and  satisfactory  in  work  of  routine 
nature. 

D.  Inferior  Intelligence.     Includes  about  fifteen  per  cent 
of  soldiers.     "D"  men  are  likely  to  be  fair  soldiers,  but  are 
usually  slow   in  learning  and  rarely  go  above  the  rank  of 
private.     They  are  short  on  initiative  and  so  require  more 
than  the  usual  amount  of  supervision.     Many  of  them  are 
illiterate  or  foreign. 

D — and  E.  Very  Inferior  Intelligence.  This  group  is 
divided  into  two  classes  (l)  "D — "  men,  who  are  very  inferior 
in  intelligence  but  are  considered  fit  for  regular  service;  and 
(2)  "E"  men,  those  whose  mental  inferiority  justifies  their 
recommendation  for  Development  Battalion,  special  service 
organization,  rejection,  or  discharge. 

The  immense  contrast  between  "A"  and  "D — "  intelligence 
is  shown  by  the  fact  that  men  of  "A"  intelligence  have  the 
ability  to  make  a  superior  record  in  college  or  university, 
while  "D — "  men  are  of  such  inferior  mentality  that  they  are 
rarely  able  to  go  beyond  the  third  or  fourth  grade  of  the  ele- 
mentary school,  however  long  they  attend.  In  fact,  most 
"D — "  and  "E"  men  are  below  the  "mental  age"  of  10  years 
and  at  best  are  on  the  border-line  of  mental  deficiency.  "B" 
intelligence  is  capable  of  making  an  average  record  in  college, 
"C+"  intelligence  cannot  do  so  well,  while  mentality  of  the 
"C"  grade  is  rarely  equal  to  high  school  graduation. 

The  principal  use  to  which  this  information  was  put  was  to 
see  to  it  that  each  company  or  battery  had  its  pro  rata  share  of 
intelligence;  in  other  words,  that  each  had  its  share  of  super- 
ior men  intellectually,  of  average  men,  and  of  inferior  men. 


134  HISTORY  OF  PERSONNEL 

The  information  was  also  utilized  as  an  aid  in  determining 
how  good  a  man  was  at  his  trade.  For  example,  a  carpenter 
of  two  years'  experience,  earning  $30.00  a  week  before  the 
war  and  of  "B"  intelligence  would  be  rated  a  journeyman, 
whereas  a  carpenter  of  five  years'  experience,  earning  $18.00 
a  week  and  of  "D"  intelligence  would  be  rated  an  apprentice. 
The  "B"  man  could  undoubtedly  learn  in  2  years  what  the 
"D"  man  could  not  learn  in  five  years,  hence  it  would  be 
fair  to  rate  them  in  terms  of  their  earnings  instead  of  their 
years  of  experience. 

These  intelligence  scores  were  used  in  many  camps  in  select- 
ing men  for  Officers'  Training  Schools.  In  some  camps  men 
of  "C —  "  or  lower  intelligence  were  not  accepted,  as  it  was 
learned  from  experience  that  practically  none  could  do  the 
work.  And  to  a  limited  extent  when  the  armistice  was  signed, 
men  were  being  assigned  to  units  in  terms  of  their  intelligence. 
Headquarters  Companies,  Machine  Gun  Companies,  etc.,  were 
being  made  up  of  men  of  "A"  to  "C — "  intelligence,  but  not 
of  "D"  men. 

The  intelligence  score  was  recorded  in  the  space  marked  "I" 
(Intelligence)  upon  the  qualification  card.  Provision  for  this 
was  made,  dating  from  the  very  first  card. 

Trade  Tests.  A  trade  test  measures  the  ability  of  the  man 
to  do  the  work  of  a  particular  trade  and  gives  him  a  score  in 
terms  of  "N"  (novice),  "A"  (apprentice),  "J"  (journeyman), 
and  "E"  (expert).  Some  tests  are  oral  in  nature  and  test  his 
knowledge;  others  require  him  to  do  some  carefully  selected 
task  which  is  known  to  be  typical  of  that  trade.  They  are 
discussed  at  some  length  in  Chapter  29  and  also  in  Chapter  VI 
of  Volume  II.  They  were  first  introduced  into  the  army  at 
Camp  Joseph  E.  Johnston  in  May,  1918,  and  by  August,  1918, 
were  established  in  all  the  Depot  Brigade  camps  and  several 
of  the  Staff  Corps  camps. 

Space  for  the  record  of  one  trade  test  was  provided  in  the 
March  15  revision  of  the  card,  space  for  three  tests  in  the 
June  1  revision,  and  for  eight  tests  in  the  November  1  revision. 


SOURCES  OF  INFORMATION  135 

It  was  found  from  experience  that  some  men  had  to  be  given 
as  many  as  four  or  five  tests  and  sometimes  more  than  that 
before  all  of  their  varied  experience  had  beenj  properly 
covered.  The  reason  for  so  many  tests  can  be  appreciated 
when  it  is  realized  that  seven  tests  were  sometimes  necessary 
to  test  a  general  auto  repairman,  i.e.,  carburetor,  magneto, 
general  engine,  general  chassis,  vulcanizing,  battery  repair, 
and  radiator  tests.  In  addition  there  was  a  test  for  driving 
an  auto  and  another  for  driving  a  truck. 

It  is  needless  to  recount  the  value  of  such  tests  determining 
as  they  do  with  great  accuracy  just  how  good  a  man  is  at 
a  particular  trade.  The  following  notice  issued  in  the  official 
bulletin  of  one  of  the  large  eastern  camps  indicates  a  new 
use  for  the  trade  tests,  and  at  the  same  time  shows  how  com- 
pletely they  were  established  asr  a  means  of  determining  the 
degree  of  trade  skill  possessed  by  a  claimant. 

"All  drivers  of  touring  cars,  motorcycles  and  trucks 
will  be  issued  a  driver's  license  by  the  Trade  Test  Officer. 
Any     unlicensed     drivers     found     driving     touring     cars, 
motorcycles  or  trucks  will  be  reported  to  their  company 
commanders.     Licenses  will  not  be  interchangeable." 

Conclusion:  Special  Tests.  The  use  of  intelligence  and 
trade  tests  in  the  Army  marks  the  first  great  step  toward  a 
real  science  of  personnel  work.  For  here  we  have  adequate 
methods  of  measuring  the  individual  as  to  certain  definite 
qualifications,  and  the  results  can  be  apprehended  and  used 
by  any  one  at  all  familiar  with  them.  The  next  steps  in 
extending  this  science  will  be  in  the  establishment  of  tests 
to  cover  the  material  discussed  in  the  following  section. 

THE  ESTIMATE  OF  THE  MAN  AND  OF  OTHERS  AS 
TO  HIS  QUALIFICATIONS 

The  third  principal  method  of  estimating  a  man's  usefulness 
is  to  be  obtained  from  what  he  thinks  of  himself  and  from 
what  others  think  of  him.  This  third  method  was  used  in 


136 


estimating  the  man's  interests,  his  character,  and  his  occupa- 
tional skill  as  based  on  the  opinion  of  former  employers  and 
friends.  There  is  no  other  way  of  handling  the  first  two. 
The  latter  has  been  very  well  taken  care  of  in  Army  person- 
nel work  through  the  use  of  trained  interviewers  and  trade 
tests,  as  far  as  estimating  his  ability  to  do  specific  kinds  of 
work,  but  not  as  to  his  personal  habits  of  industry,  faithful- 
ness, etc. 

The  man's  interests.  From  the  earliest  edition  of  the  quali- 
fication card  space  was  reserved  in  which  to  record  the  man's 
preference  as  to  the  branch  of  service  he  should  enter.  In  the 
February  1  revision  the  item  was  changed  to  read,  "State 
preference  for  branch  of  service  and  special  duty  in  that 
branch."  The  additional  information  was  requested  as  it 
was  found  that  most  recruits  did  not  have  a  clear  idea  of  the 
functions  of  the  various  branches  of  the  service  and  conse- 
quently their  preference  for  "Engineers"  or  "Signal  Corps" 
was  based  on  totally  erroneous  impressions.  But  recruits 
did  know  very  often  that  they  wanted  to  "work  with  horses," 
"drive  a  truck,"  "do  electrical  work,"  or  "  go  over  the  top." 
The  next  revision  (March  15)  changed  the  wording  to  read, 
"Branch  of  service  or  special  duty  preferred,"  which  freed 
the  idea  of  "special  duty"  from  any  definite  reference  to 
"branch  of  service" — a  decided  improvement. 

The  information  thus  secured  from  the  men  was  used  to  a 
considerable  extent  in  the  early  days.  When  several  men 
were  being  considered  for  special  assignment,  those  were 
selected  as  far  as  possible  who  preferred  that  work.  But  later 
on,  due  to  the  shortage  of  specialists,  the  man's  preference  was 
considered  less  and  less.  This  was  undoubtedly  a  weakness 
of  the  system  but  came  about  very  naturally  in  the  rush  of 
filling  requisitions  for  thousands  of  specialists  of  all  sorts  and 
kinds  each  month.  Future  improvements  in  personnel  work 
will  make  possible  greater  use  of  the  man's  preference  and 
interests  since  it  is  very  clear  from  many  investigations,  that 
what  a  man  wants  to  do  is  generally  indicative  of  what  he 


SOURCES  OF  INFORMATION  137 

can  do,  and  when  he  is  so  placed  he  is  much  more  contented 
and  so  raises  the  general  morale  of  the  whole  unit. 

The  Man's  Character.  In  the  early  days  no  provision  was 
made  to  secure  information  as  to  the  man's  character  from 
interviewing  him.  But  a  special  form — CCP-3  (see  Figure 
3,  next  page),  was  prepared  which  was  to  be  sent  by  the 
personnel  officer  to  the  man's  former  employer.  It  will  be 
noted  that  the  form  calls  for  an  estimate  of  the  man's  (a) 
trustworthiness,  (b)  general  intelligence,  (c)  ability  to  super- 
vise and  direct  men,  (d)  ability  to  work  with  others,  (e)  his 
skill  as  a  (trade  entered  on  blank),  and  (f)  the  general  esti- 
mate of  the  man's  character  and  qualifications.  The  blank 
was  never  used,  except  in  one  camp,  and  no  particular  value 
was  found  for  it  there.  Actually  such  information  as  "trust- 
worthiness" and  "ability  to  work  with  others"  is  of  little  value 
in  the  Army  although  it  is  without  doubt  very  important  in 
industry.  This  is  due  to  the  organization  of  the  Army  under 
which  the  men  must  be  fairly  trustworthy  and  must  work  with 
others  or  suffer  immediate  consequences.  The  other  items  on 
the  blank  were  covered  in  other  ways:  "General  Intelligence" 
through  actual  tests;  "ability  to  supervise  and  direct  men" 

through  information  secured  under  leadership;  "skill  as 

"  through  careful  interviewing  and  later 

trade  tests. 

A  new  situation  arose  in  June,  1918,  which  called  for  defi- 
nite information  as  to  a  man's  character  and  ability.  The 
draft  was  taking  from  essential  industries  many  men  needed 
therein,  despite  the  regulations  supposedly  operative  in  the 
local  boards.  This  brought  about  "furloughing  to  industry" 
many  men  thus  drafted.  On  July  1  instructions  were  sent 
out  by  letter  from  The  Adjutant  General's  Office,  providing 
that  a  revised  Form  CCP-3  (see  Figure  22,  Volume  II)  be 
sent  the  former  employer  in  the  case  of  specialists  designated 
by  the  War  Department.  These  forms  were  mailed  direct 
by  the  employer  to  The  Adjutant  General,  where  the  claims 
for  furloughing  were  considered.  In  the  case  of  chemists  a  two- 


138 


HISTORY  OF  PERSONNEL 


page  questionnaire  (a  mimeographed  CCP  form)  was  filled 
out  by  the  man  concerned  and  this  was  forwarded  to  The 
Adjutant  General.  Both  papers  were  considered  together  be- 
fore assigning  the  man  to  a  chemical  unit,  returning  him  to 
industry,  or  assigning  him  to  other  Army  work.  In  the  latter 

WAR  DEPARTMENT 
The  Adjutant  General's  Office 

(Commute,  on  Cl«nific«iion  of  Pcrtonnel  in  the  Army) 


From:    Personnel  Officer, 
To:  (Name) 


The  man  whose  r 
i  (Job) 


appears 


.  the  T 


side  states  that  he  > 
Since  he  is  being  c< 


is  employed  by  you  at  (P1""*) 

sidered  for  a   responsible  position  in  the  army,  you  are  re- 


quested to  answer  the  questions  on  the  reverse  side  of  this  card.  If  you  are  not  personally  acquainted  with  his  work,  kindly  have 
the  questions  answered  by  the  manager,  superintendent  or  other  official  in  your  Company  best  able  to  supply  this  information 
accurately. 

The  Government  assumes  that  you  will  answer  fully,  carefully,  and  with  the  utmost  frankness.    Your  reply  will  be  considered 
strictly  confidential.    A  franked  envelope  is  enclosed  for  your  reply.    Immediate  attention  to  this  matter  is  important. 
Form  No.  CCP-J.  Pe« 


Your  estimate  as  to  his  ability  in  the  following? 


How  )6tog  was  he  in  your  employ?—  — 

—  —years.    In  what  capacity? 

1 

2 

What  was  his  last  weekly  wage?  %  

.    When  did  he  leave  you  ? 

3 

Indicate  answers  by  X  in  appropriate  brackets. 

Very  Aver-  Very 

How  do  you  rate  hii—  Good    Good    age    Poor    Poor. 

a.  Trustworthiness? (     )()()()(). 

b  General  intelligence? (     )()()()()• 

c  Ability  to  supervise  and  direct  men  ?-(     )()()()() 

d  Ability  to  work  with  others? (     )()()()() 

e.  His  skill  as  a ?-(     )()()()(). 

General  Remarks. _ 


Your  personal  estimate  of  the  man's  character  and  qualifications 


FIG.  3. 

Questionnaire  to  Employers  (CCP  Form  3,  First  Edition) 
(Original  Size  4x7%) 

case  such  action  resulted  when  it  was  felt  that  his  claims  as  a 
chemist  had  little  or  no  merit. 

This  represents  all  that  was  attempted  in  the  matter  of 
sizing  up  a  man's  character  as  far  as  the  personnel  organiza- 
tion itself  was  concerned.  And  to  date  no  adequate  solution 
to  the  problem  has  been  suggested  which  is  operative  for 


SOURCES  OF  INFORMATION  139 

enlisted  men  in  the  Army.  Attention  should  be  called,  how- 
ever, to  one  attempt  at  solving  this  problem.  In  introducing 
personnel  work  into  the  National  Guard  and  Regular  Army 
divisions  a  flying  squadron  of  officers  and  enlisted  men  was 
established  who  handled  the  classifications  by  going  from  camp 
to  camp.  This  group  under  the  direction  of  Mr.  Kendall 
Weisiger  graded  men  as  they  interviewed  them  according  to: 

A  Physique         B  Intelligence    C  Leadership     D  Loyalty 

(1)  Robust         (1)  Keen  (1)  Self-confi-   (1)  Intense 

dent 

(2)  Average       (2)  Average       (2)  Average       (2)  Average 

(3)  Poor  (3)  Dull  (3)  Retiring       (3)  Antago- 

nistic 

The  instructions  merely  stated  that  "the  great  majority  of 
men  will  fall  within  the  middle  class.  To  be  significant  both 
extremes  should  be  used  sparingly.  After  the  interview  is 
completed  the  interviewer  will  place  the  personality  rating 
under  'Remarks'  using  the  symbols  shown  in  the  table  ex- 
pressed in  the  following  manner:  A-l,  B-2,  C-2,  D-l." 

This  system  was  utilized  in  classifying  thousands  of  men 
but  soon  fell  into  disuse  when  it  became  apparent  that  inter- 
viewers showed  great  differences  in  the  way  in  which  they 
would  rate  the  same  man.  For  example,  three  exponents  of 
the  system  rated  a  heavy  built  man  as  A-l,  A-2,  and  A-3,  on 
the  different  grounds  that  "he  was  robust,"  "fine-looking,  but 
too  fat  to  be  called  more  than  average,"  and  "poor  because 
too  fat." 

Interest  in  "loyalty"  survived  after  the  other  three  items  dis- 
appeared. And  on  the  next  revision  of  the  card  (Feb.  l), 
space  was  provided  for  the  birthplace  of  the  soldier,  of  his 
father,  of  his  mother  and  whether  he  was  a  citizen,  had  taken 
out  first  papers,  or  was  an  alien.  In  addition  a  square  with 
the  letters  S.  D.  (suspected  of  disloyalty)  was  included.  Those 
suspected  of  disloyalty  on  the  basis  of  their  birthplace  or  of 
their  general  behavior  were  checked  in  this  square  and  their 
cases  called  to  the  attention  of  the  Intelligence  Officer.  This 


140  HISTORY  OF  PERSONNEL 

was  a  valuable  addition  to  personnel  work  and  has  rendered 
very  great  service. 

THE  MAN'S  PHYSICAL  CONDITION 

In  the  early  days  of  the  war  there  was  no  need  for  noting 
the  man's  physical  condition  as  only  physically  fit  were  ac- 
cepted for  service.  Gradually,  however,  the  feeling  developed 
that  this  was  a  mistaken  idea.  Examples  of  this  sort  accumu- 
lated. A  first  class  stenographer  was  not  accepted  because 
of  flat  feet,  even  though  there  was  a  great  shortage  of  stenog- 
raphers. A  $5,000  a  year  wholesale  and  retail  shoe  man  was 
not  accepted  because  he  had  poor  eyesight,  when  he  was 
needed  by  the  Camp  Quartermaster  to  handle  the  issuing  of 
shoes  and  could  be  employed  by  the  Government  for  $30.00 
a  month.  Finally,  in  June,  1918,  authority  was  granted  to 
accept  limited  service  men  for  service.  This  is'  not  the  place 
to  record  the  gradual  development  in  regulations  and  methods 
pertaining  to  this  subject.  For  that  see  Chapter  27.  Suffice 
it  to  say  that  in  the  June  1  revision  space  was  reserved  for 
"Med.  Class"  (Medical  Classification).  In  this  space  was 
written  rating  1,  2  or  3.  A  rating  1  man  was  "satisfactory 
physically,  mentally,  and  morally."  Rating  2  included  men 
physically  fit  yet  found  lacking  in  other  respects,  as  for 
instance,  uncertain  ability  to  speak,  read  and  write  English,  or 
of  slow  mentality.  It  also  included  men  not  quite  fit  for 
general  military  service  but  free  from  serious  organic  disease, 
and  otherwise  competent  and  desirable.  These  could  be  used 
for  any  domestic  and  any  but  the  heaviest  combat  service 
(overseas).  Rating  3  included  those  of  such  physical  classi- 
fication that  they  could  be  utilized  and  their  retention  was 
warranted  for  restricted  or  limited  domestic  service. 

This  classification  was  made  by  medical  officers  and  per- 
sonnel officers  and  at  first  was  recorded  on  a  5  x  8  card  kept 
in  the  development  battalions.  This  system  was  unsatis- 
factory as  it  involved  the  use  of  a  second  card  and  the  records 
were  not  in  the  hands  of  the  personnel  officer.  Besides  this  a 


SOURCES  OF  INFORMATION  141 

still  more  serious  objection  was  found  in  the  rating  system 
itself.  These  ratings  involved  a  summary  estimate  of  the 
physical,  mental  and  moral  condition  of  the  man.  Once  made 
and  recorded  it  meant  little  to  one  who  then  encountered  it, 
for  he  could  not  tell,  for  example,  whether  rating  2  was  due  to 
poor  physical  condition,  illiteracy,  low  intelligence  or  low 
morality,  and  weakness  in  these  different  qualities  called  for 
very  different  assignments. 

In  consequence  of  this  situation  the  November  1  revision  of 
the  qualification  card  was  prepared.  Upon  the  back  of  this 
card  space  was  reserved  for  the  Physical  Findings  with  extra 
space  for  subsequent  changes.  As  the  card  was  never  used, 
no  evaluation  of  it  from  actual  experience  is  possible  but  it 
was  prepared  after  consideration  of  the  whole  situation.  The 
plan  provided  that  men  accepted  as  limited  service  should  be 
either  immediately  assigned  to  the  depot  brigade  or,  if  their 
condition  could  be  improved  through  special  training,  to  the 
development  battalion.  In  the  former  case  their  physical 
classification  would  be  recorded  on  the  face  of  the  qualification 
card  in  the  square  entitled  "Final  Physical  Classification." 
In  the  latter  case  the  classification  would  be  recorded  on  the 
back  of  the  card  in  the  square  entitled  "Preliminary  Physical 
Classification."  When  the  man  graduated  from  the  develop- 
ment battalion  and  was  ready  for  assignment  a  final  classifica- 
tion would  be  given  him  and  entered  on  the  face  of  the  card. 
These  physical  classifications  differed  from  the  ratings  first 
used  in  that  they  referred  only  to  physical  condition  and  did 
not  include  such  factors  as  illiteracy,  intelligence,  etc.  It  was 
felt  that  such  a  system  would  provide  the  best  results  as  in 
this  way  the  personnel  officer  had  before  him  on  the  card  a 
complete  statement  as  to  the  man's  condition  and  each  factor 
was  recorded  separately. 

In  addition  to  this,  the  card  provided  space  for  the 
"Surgeon's  O.  K."  opposite  the  man's  main,  second  best,  and 
third  best  occupations.  If  in  the  judgment  of  the  medical 
officer  his  physical  condition  was  such  that  he  should  not 


142  HISTORY  OF  PERSONNEL 

engage  in  any  particular  occupational  work  in  the  Army  the 
word  "No"  would  be  written  in  the  appropriate  square.  For 
example,  a  construction  foreman  with  a  weak  heart  might  be 
allowed  to  act  as  foreman  but  not  as  a  carpenter. 

It  is  believed  that  this  system  would  have  made  it  fairly 
easy  to  handle  rapidly  and  accurately  limited  service  men,  as 
well  as  the  physically  fit.  Up  to  the  time  of  the  armistice  it 
required  considerable  time  per  man  to  place  them  with  due 
regard  to  their  physical  disqualifications;  and  if  they  had  to 
be  rapidly  assigned  as  was  so  often  the  case,  then  little  atten- 
tion to  their  individual  defects  was  possible. 

Commencing  with  the  October  20,  1917,  revision  the  items 
"Height"  and  "Weight"  were  included  on  the  card.  They 
have  been  of  considerable  value  in  selecting  men  for  certain 
units,  as  Machine  Gun  Battalions  and  Truck  Units  which 
required  men  of  at  least  150  pounds  weight  almost  exclusively. 


CHAPTER  11 
THE  SOLDIERS'  QUALIFICATION  CARD 

The  Soldiers'  Qualification  Card  contains  a  record  of  all 
the  information  about  him  that  is  .deemed  necessary  in  order 
to  utilize  his  services  to  the  greatest  advantage  in  the  Army. 
The  first  card  used  in  the  Army  (September  1st,  1917)  is  illus- 
trated, pages  124  and  125.  One  subsequent  revision,  on  June 
1,  1918,  is  also  shown  on  pages  120  and  121.  These  two 
editions  with  the  edition  of  November  1  (see  Fig.  10,  11,  Vol. 
II)  represent  the  important  changes  in  the  development  of 
the  card. 

In  the  preceding  sections  many  details  of  the  card  have  been 
discussed.  It  is  the  purpose  of  this  section  to  present  more 
general  problems  relating  to  the  card  as  a  whole. 

REQUIREMENTS  FOR  AN  IDEAL  CARD 

The  fundamental  requirements  for  the  card  were  five  in 
number.  It  should  be  as  simple  as  possible;  it  should  be  ade- 
quate for  the  needs  of  the  Army ;  it  should  provide  for  a  simple 
method  of  cross-indexing;  it  should  provide  for  distinguishing 
between  degrees  of  skill  in  a  trade ;  and  it  should  fit  a  standard 
filing  system.  Because  of  the  first  two  requirements,  which 
were  maintained  to  the  end,  items  were  never  added  until  it 
was  clear  that  they  were  really  needed.  The  third  requirement 
relative  to  cross-indexing  demanded  very  careful  study  at  the 
beginning.  It  was  recognized  that  men  would  be  useful  along 
more  than  one  line;  and  that  the  use  of  duplicate  and  even 
triplicate  cards  to  show  secondary  and  tertiary  usefulnesses 
would  be  out  of  the  question  because  of  the  difficulty  of  keep- 
ing all  cards  on  one  man  properly  located.  A  card  suitable 
for  use  in  the  Hollerith  machine  was  considered.  Such  cards 

143 


144  HISTORY  OF  PERSONNEL 

are  admirable  for  statistical  work.  But  a  personnel  card,  altho 
used  to  some  extent  as  the  basis  for  statistics,  is  employed 
much  more  for  other  purposes.  The  cards  are  filed  by  com- 
panies and  the  main  problem  is  to  so  organize  the  company 
that  the  right  number  of  specialists  are  contained  therein.  Such 
balancing  can  be  done  better  by  glancing  at  the  cards  again 
and  again  than  by  running  all  the  cards  through  the  machine 
to  discover  how  many  men  there  are  of  a  certain  specialty. 
And  again  in  selecting  specialists  one  must  always  take  into 
account  not  only  the  question  of  whether  a  man  can  do  the 
work  then  needed  but  what  else  he  can  do.  It  would  be  folly 
for  example,  to  assign  a  man  to  the  Signal  Corps  because  he 
was  an  electrician  when  the  card  shows  also  that  he  is  an 
X-ray  operator,  most  needed  in  the  Base  Hospital.  Such  dis- 
tinctions can  hardly  be  made  with  Hollerith  cards.  The  tab- 
bing system  which  was  adopted  eliminated  the  need  for  dupli- 
cate cards  and  seemed  in  every  way  superior  to  the  Hollerith 
card  system.  All  machinists  are  tabbed  at  6,  all  blacksmiths 
at  7,  etc.  And  in  a  few  minutes  the  cards  of  any  trade  can  be 
pulled  from  the  file.  At  the  same  time  each  such  card  carries 
with  it  tabs  on  any  other  trades  at  which  the  men  are  skilled, 
thus  serving  as  warning  signals  against  using  a  man  in  a  trade 
at  which  he  is  less  valuable  to  the  army  than  in  some  other. 

The  fourth  requirement  that  different  degrees  of  skill  in  a 
trade  should  be  readily  indicated  also  favored  the  tabbing 
system-  as  compared  with  that  of  the  Hollerith  card.  For  by 
the  use  of  orange  tabs  for  apprentice  and  green  tabs  for  jour- 
neymen or  experts  and  no  tabs  for  unskilled  men,  three 
degrees  of  skill  were  readily  shown. 

The  fifth  requirement  for  an  ideal  card  was  that  it  should 
fit  into  standard  filing  systems.  The  adopted  form  in  the 
Adjutant  General's  Office  is  a  form  8^x3%  inches  which  is 
filed  on  end.  As  there  were  needed  at  least  50  tabs  for  the 
qualification  card  occupying  8  inches  of  space,  it  was  impos- 
sible to  use  the  A.G.O.  filing  system  which  gave  but  3%  inches 
of  tabbing  space.  The  earliest  form  of  card  was  of  this  A.G.O. 


SOLDIERS'  QUALIFICATION  CARD          145 

shape  but  had  to  be  filed  on  the  side.  Filing  cases  for  such 
an  unusual  form  could  not  be  secured  under  60  days  and  with 
little  assurance  of  shipment  then.  This  situation  forced  the 
use  of  an  8x5  card.  But  for  such  a  sized  form  it  was  impos- 
sible to  secure  authorization  from  the  A.G.O.  in  September, 
1917.  In  consequence  the  Committee  on  Classification  of  Per- 
sonnel was  forced  to  start  its  own  system  independent  of  tue 
A.G.O.  Thus  arose  the  "CCP"  group  of  forms. 

DEVELOPMENT    OF    THE    ORIGINAL 
CLASSIFICATION  CARD 

It  is  very  clear  from  the  early  records  of  the  development  of 
the  Committee  on  Classification  of  Personnel  that  the  original 
idea  of  its  founder,  Dr.  Walter  Dill  Scott,  was  the  introduc- 
tion of  the  rating  scale  into  the  army  for  selecting  officers. 
(See  Section  II.)  In  the  letter  of  July  30,  1917,  to  the  Secre- 
tary of  War  the  name  of  the  Committee  is  first  mentioned  and 
there  the  phrase  "Classification  of  Personnel"  is  emphasized. 
But  there  the  only  mention  of  personnel  work  as  now  under- 
stood was  as  follows: — 

"4.  If  a  demand  arises  for  services  on  a  large  scale 
such  as  classifying  all  of  the  500,000  men  in  the  first 
National  Army,  an  added  expense  of  ten  cents  per 
man  would  be  necessary." 

This  was  the  letter  upon  which  final  action  was  taken  by 
the  Secretary  of  War.  In  the  August  3rd  letter,  a  revision  of 
the  earlier  letter,  the  second  one  of  the  "immediate  problems" 
was  "Assistance  in  preparing  personal  history  blanks  and 
efficiency  blanks  for  training  camps."  This  item  represented 
what  would  be  the  duty  of  the  Committee  along  these  lines, 
i.  e.,  to  help  in  preparing  the  blanks  that  the  Army  would  use 
in  classifying  men. 

During  the  next  three  weeks  it  was  discovered  that  no  one 
in  the  Army  was  working  on  the  problem  of  utilizing  specialists 
as  they  came  into  the  Army  in  the  draft,  yet  every  one  assumed 


146 HISTORY  OF  PERSONNEL 

that  some  one  else  must  know  all  about  it,  and  had  made  plans 
accordingly.  In  the  notes  of  August  15,  there  appears,  "we 
began  to  formulate  cards  for  the  National  Army,  taking  as  a 
point  of  departure  the  card  we  had  drawn  up  for  the  Officers' 
Training  Camp,  for  the  Quartermaster,  and  for  the  Signal 
Corps."  "Mr.  R.  C.  Clothier  drew  up  a  tentative  plan  which 
had  three  parts.  One  part  was  to  be  torn  off  and  used  for 
Post  Office  address,  another  part  to  be  torn  off  and  used  to 
keep  records  of  progress  of  the  individual  men  in  the  com- 
pany, and  the  third  and  main  part  was  to  be  the  qualification 
card." 

About  August  21st  the  name  "Qualification  Record  Card" 
appeared  and  on  that  day,  so  the  records  show,  "Mr.  Clothier 
put  the  finishing  touches  on  our  card  for  the  National  Army 
work,  and  we  all  felt  assured  of  great  success."  Little  did 
they  know  then  of  the  long  history  of  revisions  ahead  of  the 
card.  This  occurred  three  days  before  the  arrival  of  Dr. 
Strong  who  has  spent  a  good  share  of  his  time  for  fifteen 
months  in  the  development  of  the  card.  And  in  the  next  ten 
days  there  averaged  one  new  proof  from  the  printer  a  day. 
During  those  days  "all  worked  industriously  on  getting  ready 
for  the  vocational  survey.  We  interviewed  representative  offi- 
cers for  each  branch  and  arm  of  the  Army,  requesting  that 
they  should  give  us  the  list  of  occupations  in  which  training 
was  valuable  for  their  particular  service.  By  frequent  per- 
sonal interviews  we  were  enabled  to  secure  thoroughly  good 
lists  from  all  branches  of  the  Army.  When  these  lists  of  occu- 
pations were  combined,  we  had  the  list  of  occupations  as  it 
appears  on  our  qualification  record  cards."  It  is  really  quite 
surprising  how  well  this  work  was  done  under  the  circum- 
stances. Subsequent  experience  brought  about  but  few  changes 
in  the  list. 

On  August  28th  another  letter  was  addressed  to  the  Secre- 
tary of  War,  as  follows  :— 

"A  new  problem  is  facing  the  Committee  on  Classification  of 
Personnel  in  the  Army.  How  may  drafted  men  with  special 


SOLDIERS'  QUALIFICATION  CARD  147 

fitness,  such  as  cooks,  auto  repairmen,  switchboard  men,  bac- 
teriologists, etc.,  be  discovered  immediately  upon  entering  the 
cantonments  and  assigned  to  those  units  where  their  services 
will  be  of  the  greatest  value  to  the  Army? "  This  let- 
ter asked  for  an  appropriation  of  $26,000  to  carry  out  the 
classification  plan. 

On  September  1st  a  small  supply  of  the  qualification  cards 
were  printed  and  several  individuals  spent  two  days  having 
them  filled  out  by  soldiers  in  the  District  of  Columbia  National 
Guard  and  in  other  units.  Several  changes  resulted,  the  prin- 
cipal one  being  that  the  plan  to  have  enlisted  men  fill  out  their 
own  cards  was  abandoned  in  favor  of  having  them  made  out 
by  the  company  commander.  A  few  days  later  the  qualifica- 
tion card,  illustrated  on  page  124  was  printed  for  use  in  the 
first  draft. 

SUBSEQUENT  EDITIONS  OF  THE  QUALIFICATION 

CARD 

Many  items  in  the  gradual  evolution  of  the  card  have  been 
already  discussed  in  the  preceding  chapter.  A  few  others 
which  pertain  not  so  much  to  the  means  of  evaluating  the 
soldier  himself,  but  rather  to  the  efficient  functioning  of  the 
system,  need  mention  here. 

The  introduction  of  personnel  work  into  the  National  Guard 
Divisions  brought  about  many  transfers  of  men  from  one  unit 
to  another  in  order  that  each  should  have  its  share  of  the 
specialists  it  needed.  It  was  soon  recognized  that  some  system 
must  be  adopted  whereby  the  men  most  valued  by  a  company 
commander  should  be  indicated  so  that  they  would  not  be 
transferred  by  the  division  personnel  officer  except  after  care- 
ful evaluation  of  the  relative  merits  of  the  men  in  his  present 
and  proposed  unit.  Otherwise  such  an  amount  of  friction  and 
opposition  would  develop  as  to  prevent  the  personnel  officers 
from  accomplishing  their  work.  In  consequence  on  the  Feb- 
ruary 1st  revision  appears  the  square  marked  "Preferred." 
All  such  preferred  men  were  checked  after  consultation  with 


148  HISTORY  OF  PERSONNEL 

the  company  commander  and  it  was  understood  that  they 
would  not  be  transferred  without  consultation  with  him.  In 
most  instances  the  company  commander  showed  a  high  sense 
of  his  duty  to  the  division  and  Army  as  a  whole  and  asked  for 
but  few  men  to  be  "preferred."  The  system  aided  very  mate- 
rially in  that  the  cadre  was  protected  thereby  winning  the  sup- 
port of  many  officers  who  would  otherwise  have  fought  the 
system. 

When  a  man  had  been  assigned  to  a  unit  because  of  special 
fitness  it  seemed  very  desirable  to  keep  a  record  of  the  action, 
else  later  on  he  might  carelessly  be  re-transferred  to  another 
unit.  And  also  if  a  man  had  been  assigned  as  cook  and  later 
the  company  commander  claimed  he  had  no  cooks,  the  record 
would  show  that  so-and-so  was  a  cook  and  had  been  assigned 
to  his  company  as  such.  To  accomplish  this  in  the  February 
1st  revision  the  items  "Vocational  Assignment"  and  "Military 
Assignment"  were  added.  Here  such  information  was  to  be 
recorded.  Much  confusion  arose  as  to  the  terms  and  in  the 
March  15th  revision  the  terms  were  stated  as  "Vocational  As- 
signment" and  "Rank."  The  former  item  was  again  changed 
in  the  June  1st  revison  (see  page  120)  to  "assigned  by  Person- 
nel Officer  as ."  In  some  camps  this  information  was 

recorded  and  used;  in  others  it  was  largely  ignored.  Experi- 
ence has  demonstrated  its  value  especially  in  the  office  of  a 
division  personnel  office  as  contrasted  with  a  camp  personnel 
office,  as  many  otherwise  unpleasant  controversies  can  be 
eliminated. 

The  space  for  recording  the  soldier's  organization  was  kept 
on  the  back  of  the  card  until  the  November  1st  revision  when 
it  was  placed  upon  the  face  of  the  card.  The  need  for  this 
change  was  long  realized  but  there  seemed  to  be  no  way  of 
accomplishing  it  until  it  was  decided  to  eliminate  the  list  of 
occupations.  The  greatest  gain  by  the  change  affects  the  type- 
writing of  lists  of  names.  Under  the  old  system  the  typist 
had  to  look  at  the  face  of  the  card  for  "name"  and  "army 
serial  number/'  on  the  reverse  for  "organization"  and  on  the 


SOLDIERS'  QUALIFICATION  CARD          149 

face  again  for  "occupation."     The  change  eliminated  the  need 
for  turning  the  card  over. 

Space  for  recording  information  as  to  the  man's  "talent  in 
furnishing  public  entertainment"  was  provided  from  the  start. 
On  the  February  1st  revision  appear  in  addition  "Religious 
preference"  and  "Member  of  what  fraternal  organization." 
The  three  items  were  never  used  directly  by  the  personnel 
adjutant,  but  the  information  was  utilized  many  times  by 
chaplains,  Y.  M.  C.  A.  and  other  welfare  workers,  and  by 
local  churches  in  getting  up  entertainments.  At  one  camp 
nearly  every  such  organization  called  upon  the  company  com- 
mander for  such  information.  The  presence  of  the  information 
on  the  cards  also  eliminated  the  need  for  the  circulation  of 
cards  of  inquiry  by  such  organizations. 

The  addition  of  the  item  "Physical  Findings"  in  the  Novem- 
ber 1st  edition  was  designed  not  only  to  furnish  that  informa- 
tion to  the  personnel  adjutant  who  needed  it  in  properly  plac- 
ing limited  service  men  but  it  was  also  included  in  order  to 
make  unnecessary  the  use  of  a  second  qualification  card  in  de- 
velopment battalions.  The  plan  contemplated  the  assignment 
of  an  assistant  camp  personnel  adjutant  to  handle  the  qualifi- 
cation cards  of  all  men  in  development  battalions  and  to  keep 
the  qualification  cards  of  such  men  in  the  development  bat- 
talion as  long  as  they  were  unfit  for  service. 

Such  changes  as  just  enumerated  were  thus  in  line  with  one 
of  the  general  policies  of  the  personnel  organization ;  namely, 
to  eliminate  all  unnecessary  blanks. 

THE  S.  A.  T.  C.  RECORD  CARD 

As  the  personnel  card  for  college  men  in  the  Students'  Army 
Training  Corps  (see  Volume  II  for  illustration)  was  pre- 
pared very  largely  by  the  personnel  organization  and  was  to  be 
paid  for  by  this  organization,  it  deserves  mention  at  this  point. 
Since  all  soldiers  must  have  a  qualification  card  (G.  O.  No.  46) 
it  was  necessary  to  use  either  the  Soldiers'  Qualification  Card 
or  devise  a  new  one.  As  these  college  men  had  had  little  occu- 


150 


HISTORY  OP  PERSONNEL 


i  i  4<J 


~EV*f  t 

t....t^vi>.r 


Hi 

kl? 

n1 

!  J^  i 

III 

I  j] 


1 

i 

j 


i  i  i  » 

i  a  i  | 


. 

i  i 
2  ei 


r  > 


0  ffl 


-luf  5-1  1;  -i 

I1!  <*  «  J  u   1 

«u  - 


- 

n 


2. 


Yo 


|Hj 

]  » 

3  j 

^ 

N 


H  i 

ill 

:!  f>< 

•  "9  <j 

1^-- 

•  t  to 

,1  1  i 


313 

44 

iili 


;  t»-5 

hi 


1: 

l»     3-   .> 

4  S  3 


«•  N 

£   J 


. 

U.U 


I 


APPLICANT'S  QUALIFICATION  CARD 
FIG.  4. 
Face  (CCP-1120.)  (Original  Size  8 


Card— 


Qualifica 


App 


SOLDIERS'  QUALIFICATION  CARD           151 

4* 

i    r         I                             1                          i 

£ 

1 

/—«. 
I-H 

•3 

1: 

! 

i                                                              ^N 

GO 

4 

0 

1 

i                            J§ 

I 

1 

cc 

•a 

. 

G 

A 

• 

a 

o 

• 

' 

' 

i 

' 

i 

g 

l-H 
r-H 

j 

1    i    i 

1 

0 

n' 

if' 

' 

i 
1 

J 

4                                                                     0 

1                                ^u 

_] 

i     ! 

\    I 

J                                                                                                        *     -9) 

c-  ~ 

• 

• 

z     l 

t 

6   i 

T 

| 

| 

\ 

£  $ 

K 

-  -S—  £ 

i 

' 

8                                                         i          I 

g 

| 

Sp 

3 

it 

!  !     1 

i» 

6 

I 

1 

: 

; 

I? 

^1 

c 

•  i 

'+""  !      '! 

\ 

•s 

* 

i 

O 

, 

|      j 

§ 

1 

1 

i 

• 

Ii 

3 

i 

k 

-     ; 

J 

I 

\j 

« 

• 

III       ' 

§ 

j 

J 

j 

i          &- 

! 

i             .; 

j 

! 

i: 

;  j  j  1  1 

1  a  a  J  3 

2i 

i  I 
i  i 

1      i   ! 

152   -  HISTORY  OF  PERSONNEL 

pational  experience  it  was  felt  that  the  former  would  not  be 
particularly  applicable.  In  consequence  the  S.A.T.C.  Record 
Card  (CCP-50)  was  adopted.  The  signing  of  the  armistice 
prevented  its  use  and  no  estimate  of  its  real  usefulness  is  at 
hand.  See  Chapter  41  for  further  discussion. 

APPLICANTS'  QUALIFICATION  CARD 

In  connection  with  the  work  of  the  War  Service  Exchange, 
which  was  organized  as  a  part  of  the  Committee  on  Classifica- 
tion of  Personnel,  a  card  was  prepared,  known  as  "Applicants' 
Qualification  Card"  (Form  CCP-1120), — see  Figure  4,  page 
150.  Thousands  of  civilians  desirous  of  securing  service  in  the 
Army  or  in  governmental  organizations  used  this  form  to  set 
forth  their  qualifications.  The  card  was  found  very  valuable. 
Largely  due  to  experience  with  it  the  change  was  made  in  the 
Soldiers'  Qualification  Card  on  November  1  (See  Volume 
II),  whereby  the  list  of  occupations  was  omitted  from  the 
card  and  greater  space  was  provided  for  giving  in  detail  what 
the  soldier  had  done. 

The  Applicants'  Card  was  classified  by  men  specially 
trained,  and  filed  according  to  the  classification  of  occupations 
given  in  the  Index  of  Occupations,  CCP-4. 

One  valuable  finding  in  the  use  of  this  card  should  be  rec- 
orded. In  the  case  of  many  men,  when  given  sufficient  space, 
it  is  found  that  they  record  very  trivial  performances  as  tho 
they  were  important.  This  enables  the  classifier  to  get  a  bet- 
ter line  on  their  small  calibre  or  lack  of  judgment  than  in  any 
other  way.  In  the  light  of  this  experience  application  blanks 
should  provide  more  than  sufficient  space  for  writing. 

Following  the  establishment  of  the  Personnel  Branch  in  the 
Operations  Division,  General  Staff,  a  standardized  application 
blank  for  all  candidates  for  a  commission  was  developed.  This 
card  showed  clearly  the  influence  of  the  Applicants'  Qualifica- 
tion Card  (Form  CCP-1120)  and  other  forms  developed  by 
the  Committee. 


CHAPTER  12 

THE  ACTUAL  OPERATION  OF  THE 
CLASSIFICATION  SYSTEM 

The  classification  of  soldiers  developed  into  five  separate 
steps.  First  was  the  interview,  second  the  trade  test,  third  the 
classification,  fourth  the  tabbing  of  the  cards,  and  fifth  the 
tallying  of  occupations  for  an  occupational  report  to  Washing- 
ton. Each  step  was  performed  by  different  men  specially 
trained  for  the  work. 

INTERVIEWING  SOLDIERS 

Due  to  the  experience  gained  on  September  1,  1917,  in 
having  several  companies  of  soldiers  fill  out  their  own  cards  it 
was  realized  that  the  soldier  must  be  individually  interviewed 
and  the  card  prepared  by  the  interviewer.  In  consequence  the 
first  plan  called  upon  the  company  commander  to  do  this 
interviewing.  The  plan  was  thoroughly  tried  out  in  all  na- 
tional army  camps  during  September,  October  and  November, 
and  voted  largely  a  failure.  Some  company  commanders 
always  did  a  first  class  job,  but  most  did  the  work  in  a  very 
perfunctory  manner.  And  as  time  went  on  they  did  poorer 
and  poorer  work.  One  reason  for  this  was  that  they  quickly 
came  to  realize  that  if  they  reported  a  man  as  exceptionally 
good  they  ran  a  good  chance  of  losing  him  to  some  other  unit. 
Many  good  men  were  camouflaged  as  farmers  with  little  or  no 
education.  This  was  particularly  true  of  stenographers, 
typists  and  cooks.  At  one  camp  in  October  when  100  very 
poor  men  were  transferred  as  laborers  to  the  Remount  Station 
a  veritable  howl  went  up  and  delegations  of  Captains,  Majors, 
Colonels,  and  even  one  Brigadier  General  came  to  the  per- 
sonnel office  claiming  that  their  best  men  were  being  taken 

153 


154  HISTORY  OF  PERSONNEL 

from  them.  The  cards  showed  no  such  talent.  The  most 
serious  objection  to  company  commanders  preparing  the  cards, 
however,  was  the  lack  of  standardization  in  the  work. 

As  a  result  of  all  this,  when  the  classification  was  extended 
to  the  national  guard  divisions  in  November  and  December, 
it  was  insisted  that  all  men  should  be  interviewed  by  commis- 
sioned officers  after  training  in  the  work.  For  example,  at 
Camp  Kearney  one  hundred  lieutenants  and  captains  were 
utilized.  Much  better  work  resulted.  But  there  was  a  con- 
stant change  in  the  personnel  detailed  to  the  work  causing 
instruction  to  be  given  almost  every  day  to  new  officers.  And 
-as  the  officers  most  likely  to  remain  detailed  were  officers  not 
needed  elsewhere  because  of  inferior  qualities,  most  of  the  in- 
terviewing was  done  by  the  poorer  officers  who  showed  little 
interest  in  the  work. 

Recognition  of  the  inferior  interviewing  resulted  on  Feb- 
ruary 1st  in  an  order  (letter  of  A.  G.  O.)  being  issued  requir- 
ing that  all  men  about  to  be  transferred  from  one  camp  to 
another  on  War  Department  requisition  for  specialists  should 
be  re-interviewed.  Emphasis  upon  this  was  maintained  for 
several  months. 

During  the  spring  of  1918  interviewing  by  enlisted  men 
detailed  to  the  personnel  office  commenced.  The  substitution 
of  enlisted  men  for  officers  was  not  formally  recognized  until 
some  time  later.  The  change  wrought  a  great  transformation 
in  the  work  as  the  enlisted  men  were  selected  on  the  basis  of 
their  ability  to  do  good  interviewing.  They  became  very  much 
interested  in  the  work,  as  it  really  is  a  fascinating  j  ob  for  those 
who  like  it.  And  in  addition  there  gradually  developed  in 
most  camps  a  regular  series  of  conferences  in  which  inter- 
viewing was  systematically  studied.  A  great  impetus  to  such 
training  followed  the  series  of  Schools  for  Personnel  Adju- 
tants which  were  held  during  the  months  of  April  to  Novem- 
ber, 1918. 

During  lull  periods  the  interviewers  in  many  camps  were 
allowed  to  visit  nearby  cities  in  which  they  visited  the  various 


CLASSIFICATION  SYSTEM  155 

industrial  plants  and  thereby  came  in  personal  contact  with 
many  phases  of  occupational  work.  As  an  illustration  of  the 
interest  in  good  interviewing,  when  the  interviewers  at  Camp 
Gordon  learned  that  draft  men  were  to  be  shipped  there  from 
Ohio  they  made  up  a  list  of  all  the  industries  of  that  state  and 
read  up  on  the  subject  quite  extensively. 

TRADE  TESTING 

During  the  spring  and  summer  of  1918,  trade  tests  were 
introduced  into  the  National  Army  camps  and  men  claiming 
ability  in  many  trades  were  tested  as  to  their  actual  ability. 
(See  Chapter  30  for  further  details.)  The  ratings  from  these 
tests  were  recorded  on  the  qualification  cards  and  utilized  in 
finally  classifying  the  soldiers. 

Psychological  intelligence  scores  were  also  utilized  in  esti- 
mating a  man's  general  value  to  the  service.  These  tests  were 
conducted  by  the  Psychological  Examiner,  under  the  direction 
of  the  Surgeon  General's  Office.  Such  tests  were  given  at  first 
in  only  four  National  Army  camps.  Later  they  were  intro- 
duced into  all  the  camps. 

CLASSIFICATION 

After  the  interview  and  intelligence  and  trade  test  a  classi- 
fier looked  over  the  card  and  determined  (a)  how  skilled  the 
man  was  at  each  trade  and  (b)  which  trade  was  of  most  value 
to  the  service.  The  former  was  determined  upon  the  basis  of 
all  the  information  on  the  card.  Roughly  speaking  one  to  three 
years'  experience  was  accorded  an  orange  tab  (apprentice)  and 
more  than  three  years'  a  green  tab  (journeyman).  Under  one 
year  of  experience  was  ignored  except  in  special  cases  where 
there  was  a  great  demand  and  a  decided  shortage  of  certain 
specialists,  as  wireless  men,  pigeon  fanciers,  etc.  In  the  same 
way  a  man  coming  under  $25.00  to  $30.00  a  week  was  gen- 
erally rated  an  apprentice  and  over  that  amount  a  journey- 
man. But  very  early  it  was  recognized  that  local  rates  of  pay 


156  HISTORY  OF  PERSONNEL 

had  to  be  taken  into  account.  Information  as  to  education, 
leadership  experience,  age,  and  experience  in  other  occupa- 
tions, was  considered. 

Very  shortly  a  noticeable  standardization  as  to  classification 
in  any  one  camp  was  apparent.  This  occurred  because  the 
classifiers  worked  together  and  discussed  the  merits  of  all 
doubtful  cases  among  themselves.  But  there  was  equally  a 
noticeable  lack  of  standardization  between  camps.  This  was 
particularly  true  in  the  case  of  camps  that  had  a  large  or  small 
supply  of  certain  specialists.  There  was  a  decided  tendency  to 
underrate  the  skill  of  specialists  if  they  had  many  of  them, 
and  to  overrate  the  skill  of  specialists  if  they  had  few  of  them. 
For  example,  lumbermen  at  Camp  Lewis  in  Washington  had  to 
be.  foremen  to  be  green  tabbed,  whereas  lumbermen  of  slight 
experience  at  Camp  Taylor  in  Kentucky  were  green  tabbed, 
since  they  had  but  thirty-five  all  told  among  ten  thousand. 

Visits  of  supervisors  travelling  from  camp  to  camp  aided 
very  materially  in  effecting  a  fairly  good  standardization  as 
between  camps.  The  Schools  for  Personnel  Adjutants  at  which 
this  subject  was  emphasized  accomplished  much  more.  It  is 
fair  to  add,  however,  that  classification  never  became  thorough- 
ly standardized  until  trade  tests  were  introduced.  These  tests 
helped  greatly  in  this  respect. 

Prior  to  the  introduction  of  trade  tests  a  small  handbook, 
"Aids  to  Interviewers"  TT-1,  (see  Figure  15,  Chapter  28), 
was  issued.  This  was  prepared  under  the  direction  of  Mr.  M. 
M.  Jones ;  much  of  the  actual  compilation  having  been  done  by 
Mr.  Max  Watson.  A  series  of  questions  with  their  answers 
were  given  for  about  one  hundred  trades.  It  was  thought  that 
its  use  would  aid  in  determining  the  man's  skill.  In  some 
camps  the  hand  books  were  used  considerably;  in  other  camps 
indifferently.  The  greatest  use  of  the  "Aids  for  Interviewers" 
resulted  indirectly  in  focusing  attention  upon  the  difficulties  of 
making  adequate  classifications. 

A   different  sort   of   effort   was   made   to   standardize   the 


CLASSIFICATION  SYSTEM 


157 


classification.      On   June    14th,   a   table   after   the    following 
scheme  was  issued: 


A.  G.  O.  Desig- 
nation. 

No.    Occupation. 


6.  Machinist. 

7.  Blacksmith. 

8.  Carpenter. 

9.  Concrete  worker, 

etc. 


Hate  as  an  appren- 
tice, with  ORANGE 
tab,  enlisted  men 
who  have  the  years 
of  experience  in  a 
trade  indicated  be- 
low. 

2 

2 

2 

1 


Rate  as  a  journey- 
man with  a  GREEN 
tab,  enlisted  men 
who  have  the  years 
of  experience  in  a 
trade  indicated  be- 
low. 

4 

4 

4 

3 


But  men  cannot  be  classified  with  regard  to  their  skill  at  a 
trade  on  the  basis  of  years  of  experience  alone.  Some  strik- 
ingly bad  illustrations  of  this  table  are: 


27. 
45. 
61. 

94. 


Care  of  horses 
Barber 

Airplane         Me- 
chanic 
Rubber      worker 


The  camps  were  deluged  with  men  who  had  had  care  of 
horses.  In  consequence,  the  standard  had  to  be  raised  not 
lowered  else  most  every  card  would  be  orange  tabbed  at  27, 
although  most  such  men  would  be  of  little  use  in  that  work  in 
the  Army.  Most  barbers  become  full  jonrneymen  by  a  year 
and  vulcanizers  become  experts  in  many  cases  in  3  months 
time.  As  there  were  practically  no  airplane  mechanics,  it 
was  a  mistake  to  require  two  years  experience  before  tabbing. 
Rather  should  3  months  or  even  two  months  be  set  as  the 
lower  limit,  so  as  to  have  a  record  of  any  such  experience. 
The  table  is  recorded  here  to  indicate  a  subject  never  properly 
standardized  and  which  should  be  done.  But  it  cannot  be  so 
standardized  in  any  such  easy  manner  as  indicated  here. 
Rather  must  one  include  wages,  age,  education,  other  expe- 
rience, intelligence  and  possibly  other  factors.  The  need  for 


158  HISTORY  OF  PERSONNEL 

such  standardization  is  however  lessened  by  the  use  of  trade 
tests. 

The  question  as  to  which  occupation  a  man  was  most  valu- 
able at  to  the  Army  was  an  equally  trying  problem.  In  the 
first  few  months  of  personnel  work  the  problem  was  present 
but  not  clearly  recognized.  In  placing  men  as  early  as  Sep- 
tember 1917  it  was  felt  that  some  occupational  experiences 
were  more  valuable  than  others.  But  no  set  of  instructions 
were  issued,  as  far  as  now  known,  until  April  20.  Then 
Chapter  V  of  the  Personnel  Manual  was  printed.  It  called 
attention  to  the  fact  that  the  man's  main  occupations  should 
be  determined,  "taking  into  account  (1)  the  man's  experience 
and  (2)  the  needs  of  the  Army.  His  main  occupation  may 
or  may  not  be  the  same  as  that  which  is  recorded  on  his  card 
as  the  main  occupation,  since  here  the  needs  of  the  Army 
are  also  considered."  This  statement  was  aimed  just  as  much 
at  defining  "main  occupation"  on  the  card  as  "main  occupation" 
in  classifying.  The  former  referred  to  what  was  actually 
the  man's  m^in  occupation  in  civil  life — what  he  considered 
his  main  occupation.  The  latter  considered  what  was  his  main 
usefulness  to  the  Army.  Much  confusion  had  existed  prior 
to  this  time  and  in  many  cases  interviews  made  main  occu- 
pation mean  main  usefulness.  This  was  a  mistake  as  again 
and  again  the  man's  main  occupation  was  desired.  Moreover, 
it  was  realized  that  this  information  might  be  needed  when 
the  men  returned  from  France.  This  has  been  shown  to  be 
true  in  the  case  of  wounded  soldiers  needing  reconstruction 
training  and  would  have  been  most  valuable  if  the  army  had 
been  demobilized  industrially  as  has  been  done  in  England. 

The  whole  problem  of  "main  occupation"  in  terms  of  army 
needs  arose  in  the  necessity  of  reporting  occupational  strength 
to  Washington.  It  never  was  felt  in  the  camp  except  in  this 
connection.  There  was  no  workable  scheme  whereby  men 
could  be  reported  except  as  skilled  or  partly  skilled  in  one 
occupation.  Hence  a  decision  was  forced  on  the  camps  con- 
concerning  each  man  and  once  the  decision  was  made  it  was 


CLASSIFICATION  SYSTEM  159 

necessary  to  count  the  man  that  way  ever  after,  since,  the  camp 
was  credited  with  the  man  until  ordered  transferred.  In 
order  to  make  clear  how  this  was  done  it  will  be  necessary 
to  take  it  up  in  connection  with  the  system  of  tabbing. 

TABBING  QUALIFICATION  CARDS 

The  original  system  called  for  orange  tabs  to  represent 
"sufficient  knowledge  or  experience  to  make  him  of  substan- 
tial value  in  any  of  the  branches  of  the  service."  A  green 
tab  represented  an  "expert  in  that  occupation"  (Instructions 
of  September  1917).  Very  rapidly  the  meaning  of  orange 
and  green  tabs  came  to  mean  apprentice  and  journeyman 
skill  as  outlined  above.  On  October  15th,  semi-monthly  re- 
ports were  instituted  calling  for  the  total  number  of  green 
and  orange  tabs  for  each  occupation.  As  many  cards  carried 
more  than  one  tab  these  totals  did  not  represent  men  but  the 
number  of  occupational  usefulnesses.  As  long  as  requisitions 
from  Washington  for  specialists  totaled  far  less  than  the 
supply,  allotment  on  the  basis  of  the  total  number  of  tabs 
worked  all  right.  But  as  soon  as  demand  and  supply  com- 
menced to  approximate  each  other,  trouble  arose,  as  mani- 
festly a  man  could  not  be  transferred  as  both  a  carpenter 
and  draftsman,  although  he  might  be  so  reported.  In  order  to 
rectify  this,  orders  were  issued  on  February  1st,  1918,  that 
where  there  were  two  or  more  green  tabs  on  index  numbers 
G  to  50,  that  occupation  which  represented  the  man's  best 
usefulness  to  the  army  should  be  noted  and  the  green  tab 
retained  there.  The  other  green  tabs  were  to  be  removed 
and  black  ones  put  in  their  place.  The  tabs  then  meant: 

Green — Journeyman  experience,  main  usefulness  to  army. 
Black — Journeyman  experience,  secondary  usefulness  to  army, 
Orange — Apprentice  experience,  either  main  or  secondary. 

This  Semi-monthly  report  called  for  the  total  number  of 
green,  black  and  orange  tabs  for  each  occupation. 

Following  a  conference  in  Washington,  April,  1918,  it  was 


160 HISTORY  OF  PERSONNEL 

decided  that  the  orange  tabs  should  be  similarly  distinguished. 
But  instead  of  using  another  colored  tab,  it  was  ordered  that 
when  an  orange  tab  represented  the  man's  main  usefulness 
a  cross  mark  (X)  should  be  made  on  the  tab.  All  orange 
tabs  representing  secondary  usefulness  were  left  as  they  were. 
The  tabs  then  meant: 

Green — Journeyman  experience,  main  usefulness  to  army. 

Black — Journeymen  experience,  secondary  usefulness  to  army. 
.  Orange  X — Apprentice  experience,  main  usefulness  to  army. 

Orange — Apprentice  experience,  secondary  usefulness  to  army. 

The  change  from  two  tabs  to  four  tabs  was  largel}'  made 
in  order  to  make  it  easy  for  the  personnel  officer  to  tally  his 
cards,  since  all  that  was  necessary  was  to  count  the  tabs. 

But  when  the  reports  of  occupational  specialists  commenced 
calling  (February,  1918),  for  occupations  not  by  group  head- 
ings but  by  sub-divisions  this  convenience  disappeared.  Now 
it  was  necessary  to  handle  each  card  and  to  call  off  the  par- 
ticular sub-divisions  to  which  the  man  was  assigned.  No  ad- 
vantage accrued  from  the  presence  of  four  colored  tabs  over 
the  two.  In  consequence,  the  order  was  issued  discontinuing 
black  and  orange  X  tabs.  All  journeymen  whether  of  main 
or  secondary  usefulness  were  to  be  green  tabbed.  All  appren- 
tices were  similarly  orange  tabbed.  Thus  changes  in  the 
system  of  reporting  specialists  to  Washington  resulted  in 
changes  in  the  tabbing  systems. 

Another  very  real  cause  for  the  change  back  to  the  two 
color  tabbing  system  was  the  fact  that  the  four  tab  system 
was  too  complicated  and  many  in  the  personnel  office  did  not 
seem  to  be  able  to  use  the  system  properly.  In  the  light  of 
this  experience  it  is  extremely  doubtful  if  the  Army  should 
ever  adopt  any  more  complicated  tabbing  system  than  now 
in  force. 

Tabbing  Military  Qualifications.  As  already  shown  the 
qualification  card  of  June  1st  revision  (see  page  120)  listed  26 
Army  Specialists.  These  were  to  be  tabbed  by  affixing  white 
tabs  to  the  top  of  the  card  according  to  the  second  row  of 


CLASSIFICATION  SYSTEM  161 

small  index  numbers.  As  frequently  such  a  tab  could  not 
be  placed  squarely  over  its  appropriate  number  because  of 
the  presence  of  green  and  orange  tabs,  it  was  arranged  that 
they  should  be  placed  as  near  as  possible  in  their  correct 
position  and  that  the  appropriate  number  be  written  on  the 
white  tab.  This  system,  however,  was  never  used  in  France. 

TALLYING  QUALIFICATION  CARDS  FOR 
OCCUPATIONAL  REPORT 

After  the  cards  were  classified  and  tabbed  they  were  turned 
over  to  another  group  of  enlisted  men  who  prepared  a  report 
for  Washington  of  the  occupational  strength  of  the  newly 
arrived  drafted  men.  The  report  blank  (CCP-15)  is  illus- 
trated on  page  168  of  Volume  II.  The  list  of  occupations  to 
be  reported  on  was  changed  every  month.  The  more  impor- 
tant of  the  occupations  for  army  needs  were  starred  and  the 
most  important  were  marked  with  a  "*3."  A  study  of  such 
changes  from  month  to  month  gave  the  chief  classifiers  a 
fairly  accurate  knowledge  of  the  needs  of  the  Army,  and  they 
classified  men  as  to  their  main  occupations  accordingly.  As 
they  thus  reviewed  the  cards  they  checked  with  a  blue  pencil 
close  to  the  tab  and  appropriate  symbol  letters  the  particular 
occupation  under  which  the  man  was  to  be  reported.  He  was 
so  reported  and  held  subject  to  a  requisition  calling  for  that 
particular  occupation.  This  was  necessary  during  the  last 
months  before  the  armistice  as  the  total  supply  of  specialists 
was  much  below  the  demand  and  once  a  camp  was  credited 
with  a  specialist,  it  was  essential  that  Washington  could  obtain 
the  man  when  called  for. 

USE  OF  QUALIFICATION  CARD  BY  COMPANY 
COMMANDER 

Originally,  a  duplicate  qualification  card  on  buff  stock  was 
to  be  made  out  by  the  company  commander  for  his  own  use. 
This  was  purely  optional,  however.  Experience  showed  that 


162 HISTORY  OF  PERSONNEL 

few  officers  desired  such  cards  nor  made  use  of  them,  even  if 
supplied  with  them.  In  consequence,  in  April,  1918,  the  prac- 
tice of  supplying  buff  duplicate  cards  was  abandoned.  There 
were  certain  officers,  more  often  in  engineer  organizations, 
who  did  make  considerable  use  of  the  cards.  One  engineer 
regiment  had  a  set  for  the  regiment  in  the  Adjutant's  Office, 
and  another  set  for  each  company  maintained  in  the  several 
company  offices. 

Page  6a  of  the  Service  Record  was  prepared  to  give  the 
company  commander  the  most  important  items  on  the  quali- 
fication card  covering  education,  language  ability,  intelligence 
rating,  occupational  experience  and  military  qualifications. 
This  feature  was  not  introduced  until  after  the  armistice  was 
signed  so  no  record  is  at  hand  as  to  how  far  this  procedure 
might  supply  all  the  uses  that  company  commanders  found 
for  the  buff  card. 


SECTION  IV. 
JOB  ANALYSIS 

It  is  not  only  necessary  to  "size  up"  the  man  ac- 
curately in  order  to  assign  him  to  that  duty  where 
he  can  be  of  greatest  advantage  to  the  Army,  but 
it  is  also  necessary  to  "size  up"  the  duty  he  is  to 
perform.  If  requisitions  for  skilled  men  are  inac- 
curately prepared,  then  even  though  they  may  be 
most  carefully  filled,  placement  will  not  be  made  as 
efficiently  as  it  should  be. 

Job-analysis  for  Army  purposes  falls  into  four 
general  sub-divisions,  three  of  which  are  concerned 
primarily  with  the  problems  of  the  enlisted  men. 
First,  there  had  to  be  a  classification  of  occupations 
useful  for  Army  purposes  and  a  standard  termin- 
ology which  would  make  this  classification  effective. 
(See  Chapter  13.)  Second,  Tables  of  Occupational 
Xeeds  and  the  more  elaborate  Personnel  Specifica- 
tions showing  the  requirements  of  different  kinds 
of  Army  units  had  to  be  prepared  (See  Chapter 
14.)  Third,  summaries  showing  the  number  of 
specialists  of  all  kinds  needed  in  the  Army  had  to 
be  compiled,  as  a  basis  for  the  proper  allocation  of 
such  numbers  as  were  available.  ( See  Chapter  15. ) 

The  fourth  subdivision  is  concerned  with  the 
problems  of  job-analysis  as  applied  to  Officers. 
(See  Chapters  16  and  17.) 


CHAPTER  13 

CLASSIFICATION   OF   OCCUPATIONS   AND 
STANDARD  TERMINOLOGY 

CLASSIFICATION  OF  OCCUPATIONS 

Classification  of  Occupations  on  the  Qualification  Card. 
The  records  are  extremely  fragmentary  as  to  what  was  done 
during  August,  1917,  everyone  being  too  busy  to  stop  and 
write  down  what  he  or  anyone  else  had  done,  nor  did  any  one 
feel  that  such  matters  were  of  any  moment.  The  earliest 
reference  to  job  analysis  is  on  August  15,  when  plans  were 
"begun  to  formulate  cards  for  the  National  Army."  Such  a 
card  required  a  list  of  occupations  in  terms  of  which  men 
would  be  grouped.  And  such  a  list  could  only  be  drawn  up 
on  the  basis  of  what  civilian  occupations  are  made  use  of  in 
the  Army.  The  records  show  that,  "During  the  next  two  weeks 
all  worked  industriously  on  getting  ready  for  the  vocational 
survey.  They  interviewed  representative  officers  from  each 
branch  and  arm  of  the  Army  requesting  that  they  should  give 
us  the  list  of  occupations  in  which  training  was  valuable  for 
their  particular  service.  By  frequent  personal  interviews  they 
were  enabled  to  secure  thoroughly  good  lists  from  all  branches 
of  the  Army.  When  these  lists  of  occupations  were  com- 
bined, they  had  the  list  of  occupations  as  it  appears  on  our 
Qualification  Record  Cards."  This  list  is  shown  below  in 
the  first  column,  dated  August,  1917.  The  card  upon  which 
this  list  appeared  was  never  used  however,  except  in  some 
units  of  the  Coast  Artillery.  It  was  immediately  revised, 
based  on  experience  in  trying  it  out  on  soldiers  in  the  Dis- 
trict of  Columbia  National  Guard.  The  first  card  (September, 
1917)  used  in  classifying  selective-service  men  (illustrated  on 

165 


166 


HISTORY  OF  PERSONNEL 


page  121)  contained  the  list  of  occupations  shown  in  the  second 
column  below.  The  final  list  of  occupations,  adopted  on  Feb- 
ruary 1st  is  shown  in  the  third  column. 

[NOTE:  In  reading  lists  of  occupations  read  each  occupation  from 
left  to  right,  the  development  and  changes  in  the  list  being  shown 
in  parallel  lines  in  the  subsequent  lists.] 
August,  1917  September,  1917 

1.  Factory  worker       1.  Factory  worker 

2.  Farmer  2.  Farmer 

3.  Laborer  3.  Laborer 

4.  Lawyer  4.  Lawyer 

5.  Teacher  5.  Teacher 


G.  Machine  hand 


7.  Machinist 
|  8.  Blacksmith 
{8.  Wheelwright 

9.  Carpenter 

10.  Concrete  worker 

11.  Electrician 

12.  Locksmith 

13.  Miner 

14.  Painter 

15.  Plumber 

16.  Railroader, 

traffic 

17.  Rigger 


(Included    in 
"Factory 
worker" — 1) 
6.  Machinist 
J7.  Blacksmith 
|  7.  Wheelwright 

8.  Carpenter 

9.  Concrete  worker 
|  10.  Electrician 

|  10.  Dynamo  expert 
5  11.  Locksmith 
(11.  Gunsmith 

12.  Miner 

13.  Painter 

14.  Pipe-fitter 

f  15.  Railroad,   oper- 
\  ating  man 

[16.  Section-hand 
18.  Rigger 


18.  Engineer,     rail- 

road 

19.  Engineer,      sta- 

tionary 

20.  Engineer,  grad- 

uate 

21.  Engineering 

student 


17.  Railroad       fire- 
man 
17.  Steam  Engineer 


21.  Engineer 
uate 


grad- 


February,  1918 

1.  Factory  worker 

2.  Farmer 

3.  Laborer 

4.  Lawyer 

4.  Teacher 

5.  Business   man 
(Included  in 

"Factory 
worker" — 1) 

6.  Machinist 

7.  Blacksmith 

8.  Carpenter 

9.  Concrete   worker 

10.  Electrician 

11.  Gunsmith 

12.  Miner 

13.  Painter 

14.  Pipe  fitter 

15.  R.      R.      operating 

man 

16.  Road  worker 
(See  supplementary 

list — Occupa- 
tion No.  100) 

17.  Engineman,       fire- 

man 


CLASSIFICATION  OF  OCCUPATIONS        167 

August,  1917              September,  1917 

February,  1918 

19.  Sheetmetal 

19.  Sheetmetal    worker 

worker 

20.  Foundry  man 

20.  Foundryman 

21.  Structural    steel 

worker 

22.  Auto    driver         5  22.  Auto  driver 

22.  Chauffeur  —  auto 

)  23.  Motor-truck 

23.  Chauffeur  —  truck 

driver 

23.    Auto  repairman  J  24.    Auto  repairman     24. 
1 24.  Gas    engine    re-     25. 
pairman 


524.  Horseshoer  25.  Horseshoer 

1 24.  Hostler    (horse- 
man) 

25.  Mule-packer  26.  Mule-packer 


26.  Teamster 

27.  Veterinary 


27. 


$28. 
|  28. 

28.  Draftsman  29. 

f  29.  Lineman  32. 

(29.  Phone      repair-  f33. 
man  •{ 

30.  Phone    operator  [33. 

31.  Photographer         34. 

(still) 

32.  Photographer         35. 

(moving) 

33.  Surveyor  30. 
f34.  Telegrapher          f  31. 
I  34.  Wireless  opera-  |  31. 

tor 
35.  Visual    signaller 


Care  and  hand-     27. 

ling  of  horses 
Veterinary  { 28. 

Farrier  { 28. 

Draftsman  29. 

Lineman  32. 

Phone  -  repair-     33. 

man 

Phone  operator     33. 
Photographer        f  34. 

Moving    picture  [  34. 

expert 

Surveyor  30. 

Telegrapher         $  31. 
Wireless     oper-  |  31. 

ator 

35. 


Auto  mechanic 
Gasoline  engine  re- 
pairman         (not 
auto) 

(Included  in 
Blacksmith  —  See 
Occupation  No. 
7) 


Bricklayer 

(See  supplemen- 
tary list — Occu- 
pation No.  100) 

Horse,  care  of 

Veterinary 
Farrier 
Draftsman 
Lineman 

Telephone      repair- 
man 

Telephone  operator 
Photographer,    still 

Photographer,  mov- 
ing 

Surveyor 
Telegrapher 
Wireless  man 

Lumberman 


168 


HISTORY  OF  PERSONNEL 


August,  1917 
[36.  Boatman 
\  36.  Navigator 
[36.  Seaman 

37.  Accountant 

38.  Clerk 


40.  Storekeeper 
39.  Stenographer 

J41.  Baker 

{41.  Cook 

42.  Butcher 

43.  Grocer 

f44.  Chiropodist 
|  44.  Dentist 
\  44.  Druggist 
|  44.  Medical  student 
|  44.  Nurse 
[44.  Physician 
45.  Band   Musician 


46.  Barber 

47.  Canvas    worker 


September,  1917 

5  36.  Navigator 

{  36.  Seafaring    man 

37.  Accountant 
[38.  Clerk 

-{38.  Bookkeeper 
[38.  Shipper 

38.  Stockkeeper 

5  39.  Stenographer 
{39.  Typewriter 
J40.  Baker 
{40.  Cook 

41.  Butcher 

42.  Grocer 

[43.  Chiropodist 

|  43.  Dentist 

|  43.  Druggist 

\  43.  Medical  Student 

|  43.  Nurse 

[  43.  Physician 

[44.  Brass  wind  in- 
strument 

[44.  Other  band  in- 
strument 

45.  Barber 

46.  Canvas    worker 


February,  1918 
J  36.  Boatman 
{36.  Mariner 

37.  Accountant 

38.  Clerical  worker 


18.  Stockkeeper 
$  39.  Stenographer 
{39.  Typist 
f40.  Baker 
{40.  Cook 

41.  Butcher 

42.  Merchant,     jobber, 

wholesaler 

43.  Medical  man 


48.  Harness   maker 

49.  Shoemaker 

50.  Tailor 

51.  Watchmaker 


I  47.  Harness   maker 

{  47.  Shoemaker 

48.  Tailor 

49.  Watchmaker 


44.  Band  musician 


45.  Barber 

(See  supplementary 
list  —  Occupation 
No.  76 

46.  Printer 

47.  Leather  worker 

48.  Tailor 

(See  supplementary 
list  —  Occupation 
No.  72) 

49.  Inspector 

50.  Construction    fore- 


The  most  striking  thing  about  these  three  lists  is  the  few 
changes.      "Engineer    graduate"    and    "engineering    student" 


CLASSIFICATION  OF  OCCUPATIONS        169 

were  dropped  entirely  as  "it  was  found  from  practice  that  they 
could  readily  be  found  when  wanted,  among  the  college  grad- 
uates, who  number  less  than  1%  of  drafted  men.  "Rigger," 
"Mule-packer,"  "canvas  worker"  and  "watch  maker,"  although 
important  occupations  from  the  army  standpoint  occur  in  too 
few  numbers  to  warrant  a  place  on  the  main  list  and  so  were 
relegated  to  the  supplementary  list.  "Visual  signaller"  was 
dropped  entirely  as  not  being  a  civilian  occupation.  In  the 
place  of  these  occupations  were  added  "sheet  metal  worker," 
"foundryman,"  "structural  iron  worker,"  "lumberman,"  "in- 
spector" and  "construction  foreman,"  all  trades  found  in  con- 
siderable number  in  the  draft  and  of  value  not  in  combat  units 
so  much  as  in  construction  work,  particularly  in  France. 

The  Index  of  Occupations.  The  first  edition  of  the  Quali- 
fication Card  provided  for  a  "supplementary"  group  of  occu- 
pations in  addition  to  the  group  numbered  from  1  to  49.  It 
was  recognized  that  there  were  other  occupations  not  listed 
which  would  be  of  value  in  organizing  the  Army.  At  that 
time  no  attempt  was  made  to  list  them.  On  September  28, 
a  short  additional  list  was  issued  with  instructions  that  all 
such  occupations  should  be  tabbed  at  "S"  on  the  card. 
Another  list  was  issued  on  October  20,  and  called  "Index 
of  Occupations."  It  contained  in  addition  to  the  49  main 
occupations,  37  supplementary  occupations  and  these  86  main 
groups  were  subdivided  into  165  subdivisions.  On  February 
1,  a  second  revision  was  issued  listing  50  main  occupations 
and  45  supplementary  ones  with  a  total  of  575  subdivisions. 
And  this  was  further  extended  in  the  revision  of  April  10, 
to  50  main  and  47  supplementary  occupations  with  a  total 
of  693  subdivisions.  On  November  1,  the  last  revision 
appeared  with  a  total  of  714  subdivisions.  The  three  revi- 
sions did  not  consist  merely  of  adding  occupations  but  also 
included  some  eliminations  and  many  consolidations  of  items 
and  rearrangements.  Particularly  was  this  true  of  the  second 
revision. 

No  trouble  was  experienced  in  tabbing  all  the  supplemen- 


170  HISTORY  OF  PERSONNEL 

tary  occupations  at  "S"  with  the"  single  exception  of  the 
group  "Airplane  Mechanic"  and  then  only  in  the  Division 
of  Military  Aeronautics.  In  those  offices  they  had  a  large 
enough  number  of  men  belonging  to  each  of  the  eight  sub- 
divisions of  that  group  to  warrant  having  several  separate 
groups. 

As  has  been  pointed  out  in  a  preceding  chapter  the  Index 
of  Occupations  of  October  20  had  a  code  system  of  one  or 
two  letters  representing  each  subdivision  as: 

24'     Auto  Repairer  k 

Magneto  repairer  fs 

Motorcycle  repairer  gg 

Upholsterer  mb 

tefe.  40.     Baiter  t 

45.     Barber  v 

This  code  system  was  never  employed  to  any  extent  because 
of  the  difficulty  of  remembering  the  meaning  of  the  symbols. 
With  the  February  1  revision  was  introduced  a  new  code 
system,  made  up  of  a  number  and  letter  or  letters,  the  letter 
in  each  case  being  suggestive  of  the  occupation.  For  example : 

Auto  Mechanic  24 

Assembler  24a 

Battery  24b 

Carburetor  24c 
Chassis  and  body,  also 

truck  24ch 

Designer,  expert,  etc.  24d 

Baker  and  Cook  40 

Baker  40b 
Caterer,  dining  car  con- 
ductor,   steward    o  r 

restaurateur  40ca 

Cook  40c 
Etc. 

This  mnemonic  device  was  immediately  adopted  by  all  as 
there  was  no  difficulty  in  remembering  the  occupations  for 
which  the  code  symbols  stood. 


CLASSIFICATION  OF  OCCUPATIONS        171 

At  the  time  the  February  1st  Index  of  Occupations  was 
being  developed  considerable  attention  was  given  to  the  propo- 
sition of  using  the  Census  Bureau's  system  of  classification 
of  occupations  and  their  symbol  numbers.  The  Provost  Mar- 
shal General  was  preparing  to  obtain  a  card  for  each  man 
in  the  draft  upon  which  would  be  recorded  his  occupational 
fitness.  And  they  had  decided  to  use  the  census  classifica- 
tion. If  both  systems  could  be  harmonized,  it  was  felt  that 
much  would  be  gained.  On  the  other  hand,  it  was  pointed 
out  that  the  census  classification  was  on  the  basis  of  indus- 
tries while  the  classification  already  found  extremely  useful 
in  the  Army  was  on  the  basis  of  the  tools  a  man  used.  A  car- 
penter according  to  the  former  would  be  listed  many  times, 
once  for  each  instance  at  which  he  was  found  in  the  various 
industries.  According  to  the  latter  all  carpenters'  were 
grouped  at  8  and  the  various  significant  subdivisions  were 
given  letter  subdivisions  of  8.  In  consequence  when  a  man 
was  needed  in  the  Army  to  use  a  saw  and  hatchet  and  drill 
he  could  be  found  under  one  heading,  not  under  many.  It 
was  further  urged  against  the  census  system  that  the  code 
numbers  could  never  be  remembered  and  consequently  much 
of  the  advantage  accruing  from  their  use  would  be  lost  just 
as  had  happened  with  the  code  system  of  October  20. 

The  February  1st  revision  of  the  Index  of  Occupations  was 
drawn  up  very  largely  by  Dr.  Strong  utilizing  material  secured 
by  different  members  of  the  Committee.  Much  of  the  credit 
of  the  work  was  due  to  Mr.  Swan  who  was  engaged  upon 
standardizing  the  terminology  of  occupational  terms.  A  full 
list  of  army  organizations  which  were  being  formed  or  were 
to  be  formed  was  obtained.  These  were  analyzed  with  the 
help  of  officers  intimately  connected  with  them  and  all  the 
kinds  of  occupational  specialists  who  would  be  useful  in  the 
speedy  organization  of  the  units  were  noted.  From  this 
material  was  developed  the  list  of  civil  occupations  useful 
to  the  Army.  All  other  civil  occupations  were  ignored.  The 
occupations  had  then  to  be  grouped  to  fit  the  tabbing  system 


172 HISTORY  OF  PERSONNEL 

on  the  qualification  card.  Because  of  this  certain  occupa- 
tions were  grouped  together  that  under  other  circumstances 
would  have  been  assigned  separate  groups. 

About  the  middle  of  January  the  pressure  became  so  great 
for  the  use  of  some  sort  of  a  list  of  occupations  in  connection 
with  plans  for  supplying  the  Staff  Corps  with  specialists  that 
proof  was  distributed  of  what  then  had  been  prepared.  A 
little  later  when  the  work  was  completed,  it  was  found  that 
it  could  not  be  issued  as  it  differed  in  many  details  from  the 
proof,  and  plans  for  250,000  men  had  already  been  drawn 
up  in  terms  of  the  proof.  The  completed  work,  consequently, 
had  to  be  tabled,  even  though  it  was  much  more  free  from 
misunderstanding  and  faulty  classification.  This  proof  became 
the  February  1  Index  of  Occupations.  The  April  and  Novem- 
ber revisions  because  of  the  same  condition  merely  consisted 
of  additions  and  a  few  minor  corrections. 

The  February,  April  and  November  editions  were  all 
printed  in  two  forms.  One  appeared  in  sheet  form  approxi- 
mately 20  x  17  inches  and  tabulated  the  group  headings  and 
their  sub-divisions.  The  other  appeared  in  booklet  form, 
9x4  inches  and  tabulated  in  addition  all  sub-divisions  in 
alphabetical  order.  In  order  to  distinguish  them  apart  the 
sheet  was  called  "Classification  of  Occupations"  (CCP-7)  and 
the  booklet  "Index  of  Occupations"  (CCP-4).  Those  familiar 
with  the  whole  classification  system  and  using  it  constantly 
found  the  sheet  form  preferable  as  items  could  be  found  very 
quickly  by  them.  The  booklet,  on  the  other  hand,  was  handier 
for  the  infrequent  users  since  they  could  locate  any  item  in 
its  alphabetical  place. 

Extension  of  Occupational  Classification  to  Provost  Mar- 
shal General's  Office.  The  first  questionnaire  issued  about 
December  15,  1917,  contained  eighty-seven  main  headings 
and  fifty-four  sub-headings  corresponding  in  general  to  the 
then  existing  Index  of  Occupations.  It  was  supplied  the  Pro- 
vost Marshal  General  at  his  request.  The  list  was  expanded 
to  about  four  hundred  headings  in  the  revised  questionnaires 


CLASSIFICATION  OF  OCCUPATIONS         173 

used  for  the  draft  of  men  from  18  to  45  years  of  age.  See 
Chapter  45  dealing  with  cooperative  measures  between  the 
Committee  and  the  Provost  Marshal  General  for  further 
details. 

Conclusion.  The  Index  of  Occupations  became  the  official 
classification  of  occupations  for  use  in  the  Army  and  in  the 
draft  and  its  list  furnished  for  ready  reference  practically  all 
the  civil  occupations  found  useful  in  army  organizations. 

From  an  industrial  standpoint  it  is  probable  that  a  differ- 
ent classification  and  larger  scope  is  desirable.  As  time  went 
on  and  the  Government  took  over  for  direct  operation  or 
general  supervision  a  wider  range  of  industries,  not  in  any 
sense  army  functions,  and  hence  not  included  in  the  original 
list  of  occupations  or  specifications,  the  need  of  a  broader 
classification  was  more  and  more  felt.  This  became  increas- 
ingly evident  towards  the  last  as  the  Government  gradually 
took  one  civilian  industry  after  another,  such  as,  the  manu- 
facture of  revolvers  and  the  manufacture  of  various  forms  of 
gas  and  gas  appliances,  charging  of  gas  shells,  manufacture 
of  nitrate  and  explosives  of  various  sorts.  When  such  a  classi- 
fication of  all  occupations  has  been  prepared  in  terms  of  the 
functions  of  the  work  and  not  of  the  industry,  employment 
managers  will  have  an  exceedingly  useful  instrument  for 
classifying  employees  and  for  standardizing  wages  throughout 
the  country. 

STANDARDIZATION  OF  TERMINOLOGY 

After  the  jobs  or  occupations  have  been  listed  and  classified 
the  next  step  is  to  define  the  terms.  In  fact,  definition  must 
run  along  parallel  to  classification.  But  historically  the  need 
for  such  work  does  not  arise  until  classification  has  been  be- 
gun. Shortly  after  the  first  Index  of  Occupations  was  pre- 
pared (October  20)  Mr.  Swan  commenced  gathering  informa- 
tion about  occupations  useful  to  the  Army.  Army  officers 
most  familiar  with  the  work  to  be  performed  by  soldiers  in 
the  Army  carefully  prepared  definitions  of  the  terms  used 


174 HISTORY  OF  PERSONNEL 

and  statements  of  the  qualifications  needed  for  efficient  service. 
These  were  carefully  edited  often  after  several  conferences  on 
the  subject.  They  were  issued  on  March  21,  1918,  in  a 
book  of  239  pages,  "Trade  Specifications."  The  book  is  offi- 
cially referred  to  both  as  War  Department  Document  No.  774 
and  -as  CCP-504.  A  specimen  page  follows : 

7— BLACKSMITH 
BLACKSMITH,  GENERAL  7-g  BAMSC 


47 


DUTIES 

1.  All    around    general    hammer   and    anvil    work,    and    light    forglngs 
of  any  kind. 


QUALIFICATIONS 

2.  Must  be  capable  of  doing  all  kinds  of  welding,  and  able  to  make, 
from  drawings  or  samples,  any  and  all  kinds  of  medium  and  light 
machine  and  hand  forgings,  and  familiar  with  the  use  of  either 
coal  or  coke  forge  or  small  furnace.  Some  experience  on  a  light 
steam  or  power  hammer  desirable. 

Should  be  able  to  figure  stock. 

Must  be  capable  of  making  repairs  to  automobiles,  frames,  axles, 
springs,  general  machinery,  wagons,  wheels,  chains,  tube  bending 
and  tool  dressing,  and  shoeing  horses  and  mules. 

Should  have  a  good  knowledge  "of  heat  treatment  of  steel,  In- 
cluding oil  and  water  tempering  and  air  hardening. 

Should  have  had  similar  experience  with  contracting  railroad  or 
mining  company  or  as  country  general  blacksmith. 


SUBSTITUTE    OCCUPATIONS 

3.  Machine   shop   blacksmith,    contractor  blacksmith,   forge   shopman, 
or  as   country   general   blacksmith. 


BLACKSMITH,   LOCOMOTIVE  7-1  BANON 


48 


DUTIES 

1.  General    blacksmith    work,    in    connection    with    erecting    new    or 
repairing  and  rebuilding  damaged  locomotives  and  equipment. 


QUALIFICATIONS 

2.  Must  be  an  experienced  blacksmith,  familiar  with  general,  light 
and  heavy  forging,  such  as  connecting  rods  and  main  frames, 
using  gang  sledges  or  power  driven  hammer. 

Must  thoroughly  understand  heating  large  pieces,  such  as  slabs 
and  billets  in  coal,  coke,  oil  or  gas  furnaces. 

Must  be  able  to  work  to  drawings  or  samples,  and  be  able  to 
calculate  stock  required. 

Must  be  thoroughly  skilled  In  making  all  kinds  of  welds  in  iron 
and  steel. 

Also  thoroughly  skilled  in  the  use  of  hand  tools,  such  as  cut- 
ters, flatters,  fullers  and  swages,  and  capable  of  working  from 
templates  and  blueprints  to  close  dimensions. 

Should  have  had  similar  experience  in  railroad  shop,  locomotive 
familiar  with  the  use  of  tools  used  in  flanging  and  forming  plates, 
angles  and  braces  used  in  boiler  work. 

Should  have  had  similar  experience  in  railroad  shop,  locomotive 
plant  or  heavy  blacksmith  in  any  industrial  concern. 


SUBSTITUTE  OCCUPATIONS 

3.  Forgesmith,    heavy  forgeman,   heavy   blacksmith,   flange   turner. 


•  FIG.  5. 

Trade  Specifications   (CCP-504)— Sample  Page 


CLASSIFICATION  OF  OCCUPATIONS        175 

By  reference  to  the  specimen  page  one  obtains  the  best  pos- 
sible idea  of  the  nature  of  this  book  and  its  value.  Each 
occupation  is  described  in  terms  of  the  duties  to  be  per- 
formed and  the  qualifications  necessary.  Several  substitute 
occupations  are  also  listed,  so  that  if  a  man  of  the  proper 
qualifications  is  not  available  the  next  best  choices  are  at 
hand.  The  name  of  the  occupation  is  listed  as  it  appears  in 
the  Index  of  Occupations,  with  the  code  symbol  and  also  a 
five  letter  symbol  for  use  in  cabling.  The  specifications  de- 
scribe the  ideal  skilled  man  from  the  army  standpoint.  It 
was  not  expected  that  all  the  stated  qualifications  would  be 
found  in  each  man.  The  immediate  and  large  needs  of  the 
Army  for  specialists  had  to  be  met  by  utilizing  the  substitutes 
stated,  or  less  skilled  workers  and  apprentices. 

A  revised  edition  of  "Trade  Specifications'  was  issued  on 
October  12,  1918,  in  which  a  few  minor  corrections  were 
made  and  a  number  of  occupations  were  added.  A  special 
supplement  appeared  shortly  after  expanding  the  "67-Chem- 
ist"  classification.  (See  Chapter  28  for  certain  other  phases 
of  the  subject.) 

Use  made  of  Trade  Specifications.  "Trade  Specifications" 
was  used  by  many  officers  in  preparing  requisitions  for  special- 
ists and  by  personnel  officers  in  the  camps  in  accurately  deter- 
mining what  was  wanted  by  these  requisitions  and  in  classi- 
fying men.  A  good  illustration  of  the  need  for  such  an  aid 
in  preparing  requisitions  is  furnished  in  the  case  of  General 
Pershing's  request  for  forty  "multiplex  puncher  operators." 
This  requisition  was  relayed  on  to  the  camps  with  the  result 
that  all  sorts  of  "punch  operators"  were  received.  Then  it 
was  discovered  that  what  was  wanted  were  operators  of  a 
multiplex  telegraph  typewriter.  The  original  term  used  in  the 
requisition  was  perfectly  intelligible  to  telegraph  men  but  not 
so  to  any  others.  If  this  term  had  been  standardized  this 
confusion  and  resulting  delay  in  shipping  men  would  not 
have  occurred. 

In  addition  to  this  use  of  the  "Trade  Specifications"  within 


176  HISTORY  OF  PERSONNEL 


MILLWRIGHT     (General) 

Other  Names  by  Which  Occupation  is  Known: 
Factory  Millwright. 

Occupations  Most  Nearly  Allied: 

Machinist,  Carpenter. 
Trade  Requirements: 

He  installs  and  maintains  general  power  and  transmis- 
sion machinery  and  equipment  in  shop,  plant  or  factory 
for  any  purpose;  must  be  able  to  install  and  maintain 
hangers,  shafting,  pulleys,  belts  of  all  types,  machine 
tools,  frames,  and  general  equipment;  should  be  a  prac- 
tical power  transmission  man,  able  to  lay  out  and  erect 
stringers,  hanger  and  braces ;  must  be  familiar  with 
handling  tackle  and  heavy  machinery  with  the  use  of 
jacks,  hoists,  slings,  blocks,  skids  and  cribbing. 

Education : 

Common  school. 
Physical   Requirements : 

Average  strength ;  ability  to  work  overhead. 
Mental  Requirements : 

Average  intelligence. 
Experience. 

Must  have  experience  in  laying  out  from  drawing  or 
sketches,  and  be  familiar  with  blue  prints  and  mechani- 
cal drawings ;  knowledge  of  concrete  forms,  and  concrete 
work  desirable.  Experience  in  rolling  mill  or  large 
manufacturing  plant,  machine  shop  or  railroad  construc- 
tion work  would  be  beneficial ;  should  understand  appli- 
cation and  repair  of  belts. 

Entrance  Requirements  for  Training  School: 

Common  school  education,  average  strength  and  intelli- 
gence. 

Rate  Established: 


CLASSIFICATION  OF  OCCUPATIONS         177 

the  Army,  five  thousand  copies  were  also  furnished  the  local 
boards  of  the  country  for  use  in  classifying  selective  service 
men. 

Extension  to  Labor  Department  and  U.  S.  Shipping  Board 
Emergency  Fleet  Corporation:  The  basic  idea  expressed  in 
"Trade  Specifications"  has  been  taken  up  by  the  Labor  De- 
partment. Already  a  number  of  pamphlets  have  appeared 
under  the  heading  of  "Descriptions  of  Occupations"  covering 
Water  Transportation;  Office  Employees;  Textiles  and 
Clothing;  Boots  and  Shoes;  Harness  and  Saddlery;  Tanning; 
Medicinal  Manufacturing;.  Mines  and  Mining;  Cane  Sugar 
Refining;  Metal  Working;  Building  and  General  Construc- 
tion; Railroad  Transportation;  Shipbuilding,  etc.  The 
United  States  Shipping  Board,  Emergency  Fleet  Corporation 
has  also  issued  a  similar  work  covering  "Shipyard  Occupa- 
tions." In  this  work,  published  July,  1918,  they  have  added 
a  number  of  headings  to  be  discussed  under  each  occupa- 
tion. A  sample  page  is  included  here. 

Conclusion.  This  activity  directed  toward  the  standard- 
ization of  occupational  terminology  and  the  setting  forth  of 
the  necessary  qualifications  for  a  job  has  already  had  pro- 
nounced effect  in  industry.  Much  more  is  to  be  expected  as 
men  extend  the  idea  to  other  activities.  For  when  we  defi- 
nitely know  what  we  want  a  blacksmith  or  sales-manager 
to  do,  then  are  we  in  a  favorable  position  to  select  the  right 
man  and  to  hold  him  accountable.  When  similar  precise 
information  is  at  hand  as  to  what  we  want  in  a  grammar 
school  or  college  graduate  we  shall  have  a  pronounced  im- 
provement in  the  activities  of  those  institutions. 


CHAPTER  14 
PERSONNEL   SPECIFICATIONS 

Personnel  Specifications  of  the  Army  are  a  development  of 
this  war  made  necessary  primarily  by  the  demand  for  occu- 
pational specialists,  and  secondarily  by  the  necessity  .of 
utilizing  to  the  last  degree  every  available  bit  of  human  mate- 
rial. The  need  of  such  specifications  increased  as  the  organi- 
zation of  units  of  a  great  variety  were  authorized  and  as  the 
reserve  of  man-power  decreased.  They  are,  in  brief,  an 
expression  of  the  relation  that  exists  between  the  man's  quali- 
fications and  the  duties  of  his  job  in  the  Army.  As  the  classi- 
fication of  the  specialists  coming  into  the  Army  provides  the 
supply  of  human  material  for  distribution  among  the  Corps 
and  Arms  of  the  service,  so  Personnel  Specifications  classify 
the  demand,  making  it  possible  to  achieve  the  aim  of  per- 
sonnel work  to  put  "The  Right  Man  in  the  Right  Place." 

NECESSITY  FOR  PERSONNEL  SPECIFICATIONS 

Lack  of  Organized  and  known  Demand  for  Specialists 
Supplied  by  Occupational  Classification  of  the  Army.  Speci- 
fications of  personnel  were  not  arrived  at  either  in  form  or 
substance  without  considerable  experiment,  and  experience 
in  the  use  of  substitutes.  The  occupational  classification  of 
the  Army,  begun  in  September,  1917,  and  expanding  by  de- 
grees in  all  branches  of  the  Army  until  May  9,  1918,  G.  O.  No. 
16  W.  D.  prescribed  it  for  all  soldiers,  provided  a  growing 
reservoir  of  occupational  specialists.  This  supply  was 
assembled  by  occupations.  Except  by  occupations,  therefore, 
there  was  no  proper  way  of  drawing  on  it.  But  the  demand 
for  occupationalists,  although  vaguely  known,  was  nowhere 
defined.  Before  the  occupational  classification  of  the  Army 

178 


PERSONNEL  SPECIFICATIONS  179 

was  begun,  it  was  felt  there  would  be  a  large  demand  for 
workers  of  many  varied  trades  and  for  all  degrees  of  skill 
from  apprentices  to  experts.  The  demand  soon  manifested 
itself.  Scattered  requests  came  to  The  Adjutant  General 
for  various  kinds  of  occupational  specialists  from  the  Air 
Service,  Quartermaster  Corps,  and  from  General  Pershing, 
who  early  in  the  War  needed  "buckers-up  and  holders-on" 
to  complete  the  assembling  of  railroad  cars  shipped  to  him 
knocked  down.  Yet  in  no  central  office  was  there  any  exact 
knowledge  of  what  the  demand  might  be.  A  few  of  the  staff 
corps  alone  had  accurate  and  complete  knowledge  of  what  it 
was. 

TABLES  OF  OCCUPATIONAL  NEEDS 

To  remedy  this  state  of  affairs,  work  was  started  in  Septem- 
ber, 1917,  by  Dr.  R.  B.  Perry  to  organize  tables  of  an  infantry 
division  upon  the  basis  of  what  trades  should  be  used  to 
provide  the  proper  occupational  balance.  The  Tables  of  Or- 
ganization of  the  Army,  although  providing  the  allowances 
of  various  grades,  sergeants,  corporals,  privates,  etc.,  for 
each  organization  on  a  unit  basis,  did  not,  except  in  few 
instances,  provide  what  occupational  skill  was  required  in 
order  that  the  unit  might  properly  perform  its  function.  For 
each  unit  the  Tables  of  Organization  allowed  a  certain  num- 
ber of  cooks,  horseshoers,  wagoners,  etc.,  each  of  which  is 
an  army  grade,  but  in  many  instances  the  civilian  occupational 
need  was  not  correctly  indicated  by  such  grade,  since  by 
horseshoer  (grade)  of  a  motorized  regiment  an  auto  mechanic 
is  intended,  and  by  wagoner  (grade,  in  same  regiment)  chauf- 
feur or  truck  driver  is  intended. 

Nothing  of  the  kind  had  ever  been  attempted  before  in  the 
Army,  so  there  was  neither  any  foundation  on  which  to  build, 
nor  any  trustworthy  information  from  which  tables  could  be 
compiled.  The  commanding  officers  of  several  Infantry  and 
Field  Artillery  Regiments  were  asked  to  submit  estimates  of 
the  minimum  number  of  occupational  specialists  required  for 


180  HISTORY  OF  PERSONNEL 

the  efficient  operation  of  their  regiments.  These  estimates 
in  many  cases  exhibited  such  an  extreme  degree  of  divergence 
as  to  indicate  upon  the  part  of  these  commanding  officers 
fundamentally  different  ideas  of  the  manner  in  which  certain 
parts  of  their  organizations  were  intended  to  function.  For 
instance,  one  colonel  estimated  that  a  large  number  of  truck 
drivers  and  mechanics  would  be  required  by  an  Infantry  Regi- 
ment; another  thought  a  very  few  would  suffice;  and  the 
estimate  of  still  another  fell  between  these  extremes.  The 
first  probably  expected  that  he  would  be  called  upon  to  do 
most  of  his  motor  transport  work  himself;  the  second  believed 
he  must  rely  entirely  on  the  Quartermaster  Corps  to  bring 
up  supplies,  and  the  third  thought  that  he  ought  to  provide 
a  reserve  in  case  he  could  not  obtain  all  the  help  he  needed 
from  the  Quartermaster  Corps.  This  is  perhaps  an  extreme 
case;  yet  it  illustrates  not  only  the  vital  necessity  for  stand- 
ardized tables  of  occupational  needs,  but  also  the  practical 
difficulties  which  were  encountered  in  attempting  to  construct 
these  tables. 

P'rom  cases  like  the  above  it  was  seen  that,  in  framing  the 
occupational  tables,  entire  dependence  could  not  be  placed 
upon  the  judgments  of  officers  who  differed  so  widely  among 
themselves.  A  preliminary  study  of  the  Tables  of  Organi- 
zation with  special  reference  in  each  case  to  the  function 
which  the  unit  was  to  perform,  and  to  the  equipment — trucks, 
horses,  motorcycles,  caissons — which  would  have  to  be  handled 
and  operated  by  the  personnel  of  the  unit,  was  therefore 
made. 

The  first  occupational  summary  was  issued  in  October,  1917, 
and  consisted  of  a  table  showing  the  specialists  required  in 
each  regiment  of  Infantry,  Field  Artillery  and  Engineers, 
each  Machine  Gun  and  Field  Signal  Battalion  and  each  Sup- 
ply Train  of  an  Infantry  Division,  on  the  basis  of  their  mini- 
mum strength.  It  was  very  simple  in  form,  consisting  of 
only  one  large  sheet,  and  was  called  Chart  A.  This  was 


PERSONNEL  SPECIFICATIONS  181 

shortly  revised  on  the  basis  of  maximum  strength  and  was 
issued  as  Chart  B.    (See  Figure  12). 

It  was  recognized  that  Chart  B  was  only  a  stop-gap  which 
was  to  be  replaced  as  soon  as  further  investigation  and  study 
would  permit  the  compilation  of  more  complete  and  reliable 
tables.  Dr.  Bingham  undertook  this  investigation.  Once 
more  the  advice  of  a  number  of  Commanding  Officers  in 
the  field  was  asked  and  the  resulting  suggestions  for  improve- 
ment in  Chart  B  were  given  careful  consideration.  Many 
officers  in  Washington  who  were  qualified  to  speak  authori- 
tatively on  the  subject  were  interviewed.  Numerous  visits 
were  made  to  the  Army  War  College  where  was  obtained  from 
the  officers  who  had  compiled  the  Tables  of  Organization,  de- 
scriptions of  the  functions  and  duties  which  they  had  con- 
templated would  be  performed  by  the  units  and  the  indi- 
viduals within  the  units  whose  strictly  military  structure  they 
had  so  meticulously  defined.  In  other  words,  the  Tables  of 
Organization  stated  explicitly  for  each  kind  of  company 
the  exact  number  of  non-commissioned  officers,  of  privates 
first-class,  privates,  cooks,  mechanics,  wagoners  and  horse- 
shoers  which  were  to  constitute  that  company,  but  they  gave 
almost  no  indication  either  of  the  duties  these  men  were  to 
perform  or  of  the  qualifications  which  were  required  in  order 
to  perform  these  duties  most  efficiently.  It  was  the  intention 
of  those  who  were  preparing  the  Tables  of  Occupational 
Needs  to  find  out  the  duties  to  be  performed  by  the  individual 
men  and  then  to  define  the  dutes  in  the  terms  of  the  occupa- 
tional qualifications  which  best  fitted  a  man  to  perform  them. 
The  first  Tables  of  Occupational  Needs  of  an  Infantry 
Division  were  drawn  up  during  February,  1918  by  Dr.  Bing- 
ham, assisted  by  Mr.  L.  R.  Frazier  and  Mr.  Kendall  Weisiger, 
and  were  published  and  distributed  to  the  Army  in  March. 
This  first  edition  contained  about  seventy  separate  tables, 
one  for  each  kind  of  unit,  and  a  dozen  charts  on  which  were 
summarized  the  occupational  requirements  of  the  larger  units 
of  the  division. 


182  HISTORY  OF  PERSONNEL 

The  Tables  were  probably  of  most  value  in  assisting  divi- 
sion personnel  adjutants  properly  to  distribute  among  the 
various  units  the  drafted  men  who  were  assigned  to  the  divi- 
sion by  the  War  Department,  thus  assuring  to  each  unit  its 
proper  proportion  of  the  available  specialists.  They  were 
employed  to  a  lesser  extent  in  the  assignment  of  individual 
men  to  duty  within  a  company  or  battalion.  Incidentally  the 
final  summaries  were  of  assistance  to  the  Operations  Branch, 
General  Staff,  in  determining  what  proportion  of  specialists 
from  the  draft  should  be  left  for  assignment  to  line  troops 
and  what  proportion  might  be  transferred  to  technical 
branches  of  the  service. 

It  was  realized  that  the  first  edition  was  in  no  way  perfect 
and  that  the  opinions  of  officers  in  the  field,  particularly  those 
who  had  seen  active  service  in  France,  should  be  secured 
and  embodied  in  a  revised  edition.  Accordingly,  a  repre- 
sentative of  the  Committee  who  happened  to  be  leaving  for 
France  on  the  day  the  first  numbers  were  published,  took  a 
few  copies  along  with  him  and  at  his  first  opportunity  sub- 
mitted them  to  the  commanding  generals  of  two  of  the  divi- 
sions then  at  the  Front.  They  and  their  assistants  were  able 
to  offer  but  few  suggestions  and  accordingly  the  tables,  as 
revised  in  France  were  returned  to  this  country  to  be  edited 
and  republished.  Taking  the  comments  made  by  the  officers 
of  the  American  Expeditionary  Force,  and  the  latest  esti- 
mates of  the  Chiefs  of  the  several  Staff  Corps  having  per- 
sonnel in  an  infantry  division,  as  the  basis,  a  second  edition 
was  prepared  under  the  direction  of  Mr.  Alvin  E.  Dodd,  and 
issued  in  September,  1918.  This  edition  received  general 
distribution. 

Limitations  of  Tables  of  Occupational  Needs.  Although 
the  Tables  of  Occupational  Needs  were  a  great  advance  in  the 
proper  placement  of  men,  they  had  two  important  limitations. 
In  the  first  instance,  there  was  a  limitation  upon  their  suc- 
cessful use  by  personnel  adjutants.  The  qualifications,  even 
of  the  occupational  specialist,  cannot  properly  and  definitely 


PERSONNEL  SPECIFICATIONS  183 

be  described  purely  by  a  name  which  indicates  his  occupa- 
tion. For  instance,  wireless  operators,  in  addition  to  their 
ability  to  receive  and  transmit  wireless  messages  at  varying 
rates  of  speed,  possess  other  inherent  occupational  qualifica- 
tions. Some  have  a  wider  and  more  scientific  knowledge  of 
the  use  of  wireless  apparatus  than  others.  Physical  limi- 
tations may  even  play  some  part  in  the  determination  of  the 
assignment  of  an  occupational  specialist.  A  wireless  sergeant 
of  Heavy  Artillery  must  be  able  to  stand  up  during  the  strain 
of  continuous  work  in  action,  while  the  radio  sergeant  in 
the  Air  Service  in  the  Repair  Unit  need  not  be  possessed  of 
nearly  so  perfect  a  physique  or  physical  condition,  but  should 
have  a  more  extensive  and  accurate  knowledge  of  a  wireless 
instrument  than  the  heavy  artilleryman.  Yet  both  of  these 
men  are  described  by  the  term  "wireless  operator."  In  a 
Table  of  Occupational  Needs  this  is  as  completely  as  they 
can  be  described  by  the  occupational  title.  In  consequence, 
it  was  felt  necessary  to  attempt  some  further  definition  of 
the  qualifications  than  the  mere  statement  of  an  occupational 
name. 

The  second  limitation  was  found  in  the  difficulty  unit  com- 
manders experienced  in  assigning  specialists  to  positions  with- 
in a  unit  after  they  had  been  allotted  by  the  personnel  adju- 
tant. It  is  no  disparagement  of  these  unit  commanders  to 
state  that  the  exact  duties  a  man  performs  were  not  at  all 
times  clearly  and  prominently  present  in  their  minds.  The 
qualifications  a  man  possessed,  in  many  instances,  were  well 
indicated  on  the  soldiers'  qualification  cards,  but  to  take  the 
cards  and  make  the  proper  assignment  of  men  to  jobs  within 
an  organization  required  more  than  the  knowledge  of  the 
name  of  the  job  to  be  filled — it  required  some  conception  of 
the  exact  duties  of  the  man  to  be  uppermost  in  the  mind  «f 
the  person  making  the  assignment.  In  order,  therefore, 
properly  to  relate  the  qualifications  to  the  duties  some  concise 
but  comprehensive  description  of  the  duties  was  necessary. 


184  HISTORY  OF  PERSONNEL 

PERSONNEL  SPECIFICATIONS 

In  August,  1918,  Mr.  Dodd  was  placed  in  charge  of  revising 
the  Tables  of  Occupational  Needs  then  in  existence  and  of 
developing  further  tables  for  staff  corps  organizations.  An 
organization  was  effected,  later  known  as  the  Personnel  Speci- 
fications Unit,  which  was  able  to  handle  the  editing  of  tables 
as  they  came  from  the  various  staff  corps,  and  further,  to  com- 
pile specifications  for  staff  corps  which  had  no  facilities  for 
collecting  such  material. 

With  the  aim  of  overcoming  the  limitations  of  tables  of 
occupational  needs  discussed  above,  Captain  James  Gregg, 
A.G.D.,  was  given  the  task  of  devising  a  form  that  would  re- 
late the  duties  of  the  job  to  the  qualifications  of  the  man,  and 
distinguish  the  qualifications  necessary  for  the  different  types 
of  job  to  which  men  of  the  same  occupation  would  be  assigned. 
The  present  form  of  Personnel  Specifications  resulted  from 
this  experimentation.  Except  in  the  case  of  Field  Artillery, 
they  give  first,  the  army  title;  second,  the  nearest  equivalent 
civilian  occupation,  degree  of  ability  at  it,  and  symbol;  third, 
a  suggested  substitute  civilian  occupation ;  and  fourth,  a  con- 
cise but  comprehensive  explanation  of  the  duties  of  the  job. 
In  order  to  save  printing,  and  to  make  the  definition  of  duties 
compact,  very  frequently  qualifications  have  been  stated  in 
terms  of  duties ;  that  is,  the  method  of  expression  of  the  duties 
served  to  indicate  what  qualifications,  other  than  occupational, 
were  required  in  order  to  assure  the  proper  execution  of  the 
duties.  Two  examples  will  illustrate  these  points: 
1st,  Radio  Sergeant,  for  Heavy  Artillery: 

1      Radio  Sergeant.  .  .  .  Wireless  operator — 1  Jour.  31w/ 

Substitute :    Telegrapher. 

Cares  for  and  operates  wireless  apparatus,  and  makes 
repairs  under  adverse  conditions.  Sends  and  receives 
messages  at  the  rate  of  fifteen  words  per  minute. 


Abbreviation    "Jour."     stands    for    Journeyman.       "31W"    is    the    code 
symbol  used  in  "Index  of  Occupations"  for  "wireless  telegraphers." 


PERSONNEL  SPECIFICATIONS  185 

2nd,  Sergeant  in  a  Tank  Repair  and  Salvage  Company: 

1      Mechanic.  .  .  .Gen.    auto   repairman— 1    Jour.    24g. 
Substitute:  Auto  engine  mechanic,  or  engine  bl<#ck 
tester. 

Times  and  grinds  valves;  repairs  and  adjusts  car- 
buretors, and  lubricating  and  ignition  systems ;  lines  up 
shafting  and  fits  bearings;  welds  aluminum,  steel,  cast 
iron  and  bronze  parts  of  motor  equipment.  May  be  called 
upon  to  do  general  blacksmith  work  and  to  read  mechani- 
cal sketches  and  blue  prints. 

In  the  first  case,  in  stating  that  the  Radio  Sergeant  "sends 
and  receives  messages  at  the  rate  of  15  words  per  minute," 
a  certain  standard  of  ability  as  a  radio  operator  is  required; 
in  the  second  example  given,  the  fact  that  the  general  auto 
repairman  called  for  in  the  Tank  Repair  and  Salvage  Com- 
pany "may  be  called  upon  to  do  general  blacksmith  work  and 
to  read  mechanical  sketches  and  blue  prints,"  elaborates  his 
qualifications  beyond  the  name  of  his  occupation. 

Insufficiency  of  Occupational  Qualifications.  The  tendency 
that  predominated  very  largely  in  the  Committee  was  to  call 
for-  any  sort  of  a  man  by  his  occupational  name.  40.1  percent, 
of  the  personnel  of  an  Infantry  Division  according  to  the 
revised  Tables  of  Occupational  Needs  published  in  September, 
1918,  were  designated  as  occupational  specialists.  In  a  very 
real  sense,  the  Tables  of  Occupational  Needs  were  inaccurate. 
What  was  meant  was  not  that  40.1  percent,  of  the  personnel 
of  the  Infantry  Division  had  to  be  occupational  specialists 
but  that  40.1  percent,  of  the  duties  performed  by  men  in  the 
Division  had  occupational  character.  In  other  words,  the 
tendency  was  to  give  the  company  commander  who  needed 
a  man  to  perform  slight  carpentering  operations  an  apprentice 
carpenter,  or  if  he  needed  a  man  who  was  required  to  make 
a  few  wire  ties,  an  apprentice  electrician.  In  lieu  of  any- 
thing better  in  the  way  of  expressing  a  demand  for  men  this 
method  was  permissible.  If  a  wire  must  be  tied  one  is  much 
more  sure  that  the  tying  will  be  accomplished  by  assigning 
to  that  job  an  apprentice  electrician  than  by  assigning  a  crane 


186  HISTORY  OF  PERSONNEL 

operator   or   a  clerk.      Yet  there  was   much   wastage   in   this 
method. 

Leadership  must  be  Considered.  Again  this  tendency 
toward  assigning  occupational  specialists  to  perform  every  job 
ran  itself  into  the  ground  in  other  directions.  Theoretically 
the  best  person  for  a  first  sergeant  is  a  man  who  has  had  con- 
siderable experience  in  handling  men.  Inasmuch  as  his  con- 
nection with  the  men  is  not  of  an  overly  refined  or  highly 
intellectual  character,  a  college  professor  or  a  business  exec- 
utive is  not  required.  If  one  had  to  pick  an  occupational 
specialist  for  this  position  one  would  naturally  pick  some 
such  individual  as  a  construction  boss,  and  the  pity  of  it  is  that 
in  many  instances  in  Tables  of  Occupational  Needs  the  con- 
struction foreman  was  actually  specified  for  the  position  of 
first  sergeant.  The  trouble  with  this  is  not  that  the  construc- 
tion boss  would  not  make  a  good  first  sergeant,  but  that  some- 
body else  might  make  a  better  one.  In  assigning  a  specialist 
to  a  job  which  requires  a  good  deal  more  than  mere  occupa- 
tional ability  one  cannot  be  sure  that  the  occupational  special- 
ist so  assigned,  will  be  able  to  perform  the  duties.  In  other 
"words,  a  man  cannot  be  warranted  for  a  non-commissioned 
officer's  job  purely  on  the  basis  of  his  occupational  qualifica- 
tions. A  non-commissioned  officer  must  in  addition  to  occu- 
pational skill  possesses  other  qualifications  which  will  fit  him 
for  the  business  in  the  army  for  which  he  is  warranted. 
Although  the  foreman,  boss,  or  superintendent  theoretically 
makes  the  best  first  sergeant  for  a  Rifle  Company  in  many 
particular  instances  it  has  been  found  that  in  that  company 
it  is  the  telegrapher,  clerk,  benchhand,  miller  or  bricklayer 
who  in  the  ordinary  run  of  events  looms  up  as  the  best 
material  for  a  first  sergeant.  There  have  been  no  endeavors 
to  influence  the  company  commander's  selection  of  non-com- 
missioned officers  even  by  sending  him  occupational  special- 
ists for  non-commissioned  jobs;  the  mistake,  however,  was 
made  in  attempting  to  embody  qualities  of  physique,  education, 
intelligence  and  character  in  a  mere  occupational  name. 


PERSONNEL  SPECIFICATIONS  187 

Intelligence.  In  the  third  place,  the  more  the  various  jobs 
of  the  Army  were  studied  the  more  it  became  apparent  that 
in  order  to  put  "The  Right  Man  in  the  Right  Place"  one  had 
to  consider  more  than  occupational  qualifications.  It  became 
apparent  that  not  only  was  it  impossible  in  all  instances  to 
assign  men  on  the  strength  of  their  occupational  qualifications 
but  that  in  many  instances  occupational  qualifications  were  a 
hindrance.  In  the  first  days  of  the  new  draft  army  and  the 
occupational  classification  of  it,  commanding  officers  were  very 
willing  to  have  all  the  occupational  specialists  assigned  to 
their  organizations  that  personnel  adjutants  would  assign 
simply  because  they  found  that  the  average  of  intelligence 
was  higher  in  occupational  specialists  than  in  men  who  had 
no  training  or  skill.  But  with  the  development  of  the  Army 
Mental  Tests  a  new  measure  of  intelligence  and  a  more  accu- 
rate one  was  arrived  at.  From  the  time  that  these  were 
adopted  universally  by  the  Army,  it  was  possible  to  specify 
a  certain  grade  of  intelligence  and  to  secure  it.  Command- 
ing officers,  moreover,  discovered  that  in  the  present  army 
men  had  to  do  a  great  deal  more  than  walk  or  write,  (to  some 
extent,  complete  qualifications  for  many  enlisted  positions  of 
the  old  army),  in  order  to  be  able  to  produce  the  kind  of  or- 
ganization that  was  required.  Intelligence  was  a  factor ;  and 
in  addition  to  maintaining  a  certain  level  of  intelligence  in  an 
organization  there  were  some  men  who  necessarily  had  to 
have  more  intelligence  than  others.  Furthermore,  command- 
ing officers  realized  that  the  sooner  they  got  this  intelligence 
functioning  in  the  right  place  the  more  quickly  would  their 
organization  be  fit  for  overseas  service,  and  so  in  Personnel 
Specifications  in  such  places  as  were  necessary  there  were  in- 
corporated requests  for  men  of  a  definite  amount  of  intelli- 
gence to  perform  the  duties  of  the  job. 

Education.  Other  qualifications  that  were  essential  to 
proper  functioning  in  a  particular  place  were  looked  for  by 
those  training  the  men  for  these  positions.  In  certain  posi- 
tions in  the  Army  education  was  a  requisite.  For  example  in 


188     '  HISTORY  OF  PERSONNEL 

many  instances  it  was  necessary  to  specify  that  certain  indi- 
viduals be  able  to  read  and  write  English,  as  not  only  was  our 
Army  made  up  of  men  in  large  proportion  who  could  not  read 
or  write  English  but  also  of  men  who  were  illiterate  in  any 
language.  Again,  it  was  found  necessary  to  stress  certain 
technical  qualifications.  Qualifications  akin  to  those  men- 
tioned above  in  the  cases  of  the  man  who  had  to  do  minor 
carpentering,  and  the  man  who  had  to  tie  wires  were  asked 
for.  Such  qualifications  did  not  actually  amount  to  technical 
qualifications  but  did  involve  some  skill  at  one  thing  or  another. 
This  situation  was  the  same  as  that  already  brought  out  in 
regard  to  leadership,  where  it  has  been  found  that  a  leader 
can  not  in  every  instance  be  picked  upon  the  basis  of  his  prior 
experience,  nevertheless  the  indications  on  a  soldier's  quali- 
fication card  provide  a  very  good  clue  for  assigning  a  man 
to  a  position  in  which  this  qualification  plays  an  important 
part. 

Physical  Qualifications.  In  the  last  place,  physical  quali- 
fications play  a  large  part  in  the  assignment  of  men  to  the 
various  organizations  which  any  modern  Army  employs. 
Many  places  can  be  filled  by  men  of  limited  physical  abilities. 
It  is  not  necessary  that  a  physically  perfect  man  be  assigned 
to  all  jobs.  Here  is  felt  the  need  of  an  extended  study  by  the 
Medical  Department  in  conjunction  with  the  specialists  of 
all  arms  of  the  service  in  order  to  determine  once  and  for  all 
those  positions  for  which  men  of  limited  physical  ability  can 
be  used  to  advantage.  In  some  places  defective  eyesight, 
defective  hearing,  a  malfunctioning  heart,  or  lameness  would 
not  be  a  drawback,  but  these  are  not  matters  of  guesswork ; 
they  should  be  matters  of  scientific  study  and  elaboration,  and 
Personnel  Specifications  have  generally  declined  to  specify 
accurately  the  physical  qualifications  of  a  man,  mainly  ex- 
pressing desired  physical  excellence,  because  it  has  been  real- 
ized that  anything  short  of  scientific  knowledge  on  the  subject 
would  be  useless. 

Therefore  the  development  of  Personnel  Specifications  has 


PERSONNEL  SPECIFICATIONS  189 

progressed  to  the  point  where  for  every  position  in  the  Army 
a  detailed  study  or  job  analysis  had  to  be  made.  It  was  im- 
possible to  arrive  at  any  accurate  information  as  to  what  con- 
stituted the  qualifications  of  a  man  for  a  job  until  the  duties 
of  the  job  were  analyzed  and  set  forth.  Throughout  the  whole 
course  of  this  matter  the  endeavor  has  been  to  put  the  horse 
before  the  cart  but  this  arrangement  can  not  be  made  until 
job  analysis  gets  into  the  Tables  of  Organization.  It  is  im- 
possible to  lay  out  the  organization  of  any  functioning  depart- 
ment or  unit  in  the  Army  until  one  is  aware  of  the  duties 
of  the  various  positions.  To  allow  a  certain  number  of 
sergeants,  a  certain  number  of  corporals,  a  certain  number 
of  privates  to  a  given  organization  without  knowing  what  jobs 
they  are  to  perform  is  like  sending  ammunition  to  the  front 
without  the  assurance  it  is  going  to  be  used.  And  so  in  the 
study  of  Personnel  Specifications  made  from  August,  1918,  to 
the  present  day  an  effort  has  been  made  to  master  the  details 
of  the  job  and  to  reduce  to  writing  a  brief  but  comprehensive 
definition  of  the  duties  thereof  in  order  to  arrive  at  the  point 
where  the  qualifications  of  the  person  to  perform  those  duties 
could  properly  be  determined. 

EXPANSION  OF  PERSONNEL  SPECIFICATIONS 

While  the  second  edition  of  the  Tables  of  Occupational 
Needs  for  an  Infantry  Division  were  being  completed  in  Sep- 
tember, 1918,  Personnel  Specifications  for  other  arms  of  the 
service  had  been  commenced,  upon  the  basis  of  the  develop- 
ment mentioned  above.  A  detail  of  Coast  Artillery  officers 
who  had  attended  the  10th  School  for  Personnel  Adjutants  at 
Camp  Meigs  was  started  working  on  Personnel  Specifications 
for  Coast  Artillery.  The  method  of  procedure  was  new  and 
to  a.  very  large  extent  the  rules  for  making  definitions  had  to 
be  formulated  as  the  work  progressed.  Nevertheless,  within 
three  weeks  Personnel  Specifications  for  the  entire  Coast  Ar- 
tillery Corps  (exclusive  of  fixed  armament),  including  trench 


190  HISTORY  OF  PERSONNEL 

mortars,  artillery  headquarters,  anti-aircraft  artillery,  railway 
artillery,  motorized  artillery,  and  trains  and  parks,  were  com- 
pleted. The  publication  of  this  book,  however,  was  delayed 
because  it  was  felt  necessary  to  have  the  work  approved  by 
officers  who  had  seen  service  with  these  units  in  the  field  in 
France.  Captain  Joseph  M.  Larimer,  A.G.D.,  therefore,  one 
of  the  detail  of  officers,  who  was  later  detailed  as  an  assistant 
to  Captain  Gregg,  took  this  work  to  Camp  Eustis,  Virginia, 
where  it  was  thoroughly  checked  by  the  officers  of  the  Coast 
Artillery  Corps  who  had  been  with  these  units  in  service  over- 
seas. The  work  was  approved  almost  verbatim  and  was  issued 
in  December,  1918. 

The  first  of  the  series  of  Personnel  Specifications  to  appear 
in  print  was  the  Air  Service,  Division  of  Military  Aeronautics, 
in  three  sections:  Section  I.,  Headquarters  and  Balloon  Sec- 
tion, Form  CCP-470,  published  November,  1918;  Section  II., 
Service  Units,  Form  CCP-471,  published  November,  1918; 
Section  III.,  Construction,  Repair  and  Supply  Units,  Form 
CCP-472,  published  December,  1918.  This  work  was  com- 
piled almost  entirely  by  First  Lieutenant  John  W.  Dissette 
of  the  Air  Service,  who  had  assisted  in  the  preliminary  organ- 
ization of  some  flying  fields.  This  officer  later  compiled  a 
supplement  to  the  Air  Service  M'hich  contains  the  Personnel 
Specifications  for  a  single  unit  flying  field,  this  book 
(CCP-473)  being  published  in  January,  1919. 

Shortly  afterwards  appeared  the  Coast  Artillery  Corps,  a 
book  of  102  pages  (CCP-465).  In  rapid  succession  thereafter 
.appeared  Personnel  Specifications  for: 

Motor  Transport  Corps,  complete  (CCP-458).  Decem- 
ber, 1918. 

Cavalry  Regiment  (CCP-460),  December,  1918. 

Signal  Corps,  including  Field  Signal  Battalion,  Telegraph 
Battalion  and  Pigeon  Company  (CCP-475),  December, 
1918. 

Tank  Corps,  complete  (CCP-459),  December,  1918. 

Corps  of  Engineers,  in  three  sections,  January,  1919: 


PERSONNEL  SPECIFICATIONS  191 

Section       I.     (CCP-480) : 

Part  1.     Divisional  Troops   (Fully  Armed). 
Part  2.     Corps  and  Army  Troops  (Fully  Armed). 
Section     II.     Special   Troops,   except   Transportation 

(Partly  Armed). 

Section  III.     Transportation  Troops  (Partly  Armed), 
Gas      Regiment     of     the     Chemical     Warfare     Service 
(CCP-479).     March,  1919. 

In  addition  to  the  books  published  there  were  also  prepared 
Personnel  Specifications  for  the  Field  Artillery,  Quartermaster 
Corps,  Medical  Department,  Ordnance  Department  and  In- 
fantry Machine  Gun  Units.  The  Tables  of  Occupational 
Needs,  Form  CCP-457,  had  been  published  in  December,  1918, 
for  the  Quartermaster  Corps  to  satisfy  the  immediate  needs 
for  an  occupational  survey  in  that  branch  of  the  service.  The 
expansion  of  this  work  to  cover  the  entire  Army  was  largely 
the  result  of  the  insistence  of  Mr.  Dodd,  whose  theory  it  was 
that  the  Personnel  Specifications  Unit  must  function  for  the 
entire  Army  inasmuch  as  it  was  found  that  the  various  units  of 
the  Army  were  not  able  to  codify  the  demand  in  a  standard 
fashion. 

The  work  of  editing  these  Specifications,  iii  addition  to  the 
officers  mentioned  above,  was  aided  by  Captain  Charles  C. 
Dilley,  A.G.D.,  who  was  one  of  the  original  detail  of  Coast 
Artillery  Officers  which  drew  up  the  specifications  for  the 
Coast  Artillery. 

METHOD  OF  MAKING  PERSONNEL  SPECIFICATIONS 

Standardization  of  Needs.  The  occupational  classification 
of  the  Army  has  standardized,  at  least  for  Army  purposes, 
the  various  trades.  The  qualifications  and  duties  of  each  par- 
ticular vocation  have  been  clearly  and  definitely  set  forth  in 
"Army  Trade  Specifications."  Staff  Corps,  therefore,  in  order 
to  secure  the  specialists  needed  have  been  required  to  use 
these  standard  definitions  of  what  constitutes  the  different 
grades.  Each  staff  corps,  except  in  rare  instances,  determined 


192  HISTORY  OF  PERSONNEL 

the  requirements  of  the  corps  as  to  (1)  a  man's  trade  skill, 
(2)  other  qualifications  necessary  for  his  proper  functioning, 
and  (3)  the  description  of  his  army  duties.  In  order,  how- 
ever, to  standardize  the  expression  of  the  needs  of  the  various 
corps  and  arms,  it  was  necessary  to  clear  the  requisitions  for 
personnel  through  a  central  office  which  possessed  the  requisite 
facilities  for  making  this  demand  uniform.  In  this  way  the 
terminology  for  qualifications  and  duties  for  each  organization 
was  simplified  and  standardized. 

Qualifications  of  Members  of  the  Personnel  Specifications 
Unit.  The  men  who  composed  this  unit  were  selected  from 
those  who  possessed  three  qualifications.  No  less  than  two 
were  required  to  be  present  in  each  individual;  it  being  pos- 
sible so  to  divide  the  -work  that  it  passed  successively  twice 
through  the  hands  of  those  possessing  all  the  qualifications. 
Following  are  these  qualifications: 

1.  Knowledge  of  army  organization  and  resultant  military 
functioning.      The    essentials    of    military    relationship    must 
always  be  borne  in  mind.     Even  when  an  army  unit  is  per- 
forming a  function  almost  purely  vocational  it  is  frequently 
necessary  to  estimate  to  what  extent  the  military  relationship 
will  affect  the  performance  of  these  duties.     Further,  if  there 
are  military  duties  to  be  performed,  in  addition  to  and  inde- 
pendent of  the  vocational  functioning,  only  a  person  who  has 
had  varied  or  extensive  military  service  can  qualify  in  this 
respect. 

2.  Ability  to  understand  the  functioning    of    the    various 
trades.     In  order  properly  to  describe  the  duties  of  -any  army 
job,  and  to  determine  what  sort  of  man  will  be  required  at 
that  job  in  the  light  of  the  duties  he  performs,  one  must  be 
able  to  visualize  the  job  being  performed.     This  qualification 
depends  upon  the  person  having  actually  seen  the  operation 
being  performed,  or  upon  a  wide  experience  with  trade  special- 
ists, from  which  he  can  determine  what  the  specialist  would 
do  under  given  circumstances. 

3.  Ability  to  collate,   unify   and   edit  demands   for  trade 


PERSONNEL  SPECIFICATIONS  193 

specialists.  This  calls  for  more  than  ordinary  editorial  ability. 
It  requires  good  judgment,  and  some  knowledge  of  the  trades. 
Necessity  for  Supervision  of  All  Specifications  by  One  Staff. 
Whether  the  work  of  compiling  personnel  specifications  is 
initiated  by  the  Personnel  Specifications  Unit  or  by  officers 
within  a  Staff  Corps  who  arc  expert  in  matters  of  its  per- 
sonnel, it  is  necessary  that  all  specifications  be  edited  and  gen- 
erally supervised  by  the  Specifications  Unit.  Otherwise  it  is 
inevitable  that  deviations  from  the  general  plan  will  creep 
into  the  specifications  which  will  make  it  difficult  to  handle 
personnel  matters  for  the  Army  as  a  whole. 

UNDERLYING  PRINCIPLES  IN  MAKING  PERSONNEL 
SPECIFICATIONS 

Function  of  the  Army  Unit.  Before  one  can  intelligently 
demand  specialists  for  the  formation  of  an  army  unit,  the 
functions  of  that  unit  must  be  well  defined  in  all  particulars. 
For  the  purpose  of  conveniently  classifying  the  primary  func- 
tion of  the  unit,  army  organizations,  ranging  in  size  from  a 
detachment  to  a  brigade,  can  usually  be  placed  under  one  of 
the  following  three  heads: 

1.  Combatant — units    armed,    equipped    and    organized 

for  attacking  the  enemy. 

2.  Administrative-1— units  which  administer  the  affairs  of 

the  army  in  accordance  with  regulations. 

3.  Technical  or  vocational — units  which  perform  duties 

which  call  for  the  employment  of  technical  or  occu- 
pational specialists  as  such. 

This  classification  may,  at  first,  seem  illogical  or  contrary 
to  the  general  method  of  classification.  But  when  it  is  remem- 
bered that  it  is  made  purely  upon  the  basis  of  the  primary 
function  of  the  unit,  the  reason  for  it  will  be  apparent. 
Thus  a  regiment  of  sappers  (Corps  of  Engineers)  is  not 
classified  as  combatant,  but  as  technical,  for  its  primary 
function  is  to  work  with  the  pick  and  shovel, — although  armed, 
it  utilizes  these  arms  only  in  emergencies  and  for  its  own 


194  HISTORY  OF  PERSONNEL 

defense ;  similarly,  an  organization  of  military  police,  although 
armed,  has  primarily  an  administrative  function,  and  is  so 
classified.  A  rifle  company  in  an  infantry  regiment,  a  machine 
gun  company,  and  a  battery  of  artillery  would  obviously  fall 
under  combat.  A  supply  company  would  be  administrative. 
Engineering  troops,  in  general,  and  a  motor  mechanics  regi- 
ment (air  service)  would  fall  under  technical. 

Determination  of  Subsidiary  Operations  of  Unit.  The 
method  in  which  the  unit  accomplished  its  primary  function 
will  depend  to  a  large  extent  upon  the  nature  of  the  function. 
The  primary  function  of  a  combatant  unit  being  to  fight,  the 
method  of  accomplishing  this,  and  the  consequent  division  of 
the  work  will  be  largely  tactical.  So  that  in  a  machine  gun 
company  of  an  infantry  regiment  the  work  of  the  unit  will  be 
divided  among  the  tactical  divisions  of  the  company  which 
are  the  company  headquarters,  the  three  platoons  and  the 
combat  trains.  But  for  the  purpose  of  finding  out  what  duties 
each  man  performs,  and  what  qualifications  each  must  possess, 
a  stop  cannot  be  made  here.  Each  of  these  tactical  divisions 
must  be  further  analyzed.  So  that  it  is  found  that  in  each 
platoon,  there  are  headquarters  and  two  sections.  Each  sec- 
tion is  composed  of  two  squads  and  the  function  of  each  squad 
is  to  fire  one  machine  gun.  Thus,  the  smallest  operation  in 
the  unit  is  arrived  at,  and  the  matter  of  deciding  upon  the 
qualifications  and  duties  of  each  person  who  assists  in  the 
operation  is  simplified.  In  a  similar  manner  consideration  of 
functions  of  the  operations  performed  by  each  sub-division  are 
reduced  to  the  simplest  operation  it  performs.1 


1  Note:   In  this  connection,  therefore,  there  may  first  be 


,   aiiu   UUUKB  are  nepi   to   ueierrnme   me  amount  01   loou  a  company 
r.      The    system    of    feeding,    housing:   and    equipping   the    men,    is 

a  function  constant  with  every  unit.     Others  may  vary,  but  except 

that    the    number    of    men    for    which    it    functions    is    variable    this    one    is 
fixed.     The  persons  who  draw  the  supplies  and  issue  them,  provide  the  food 


may    draw, 
therefore  a 


1 

a 

•F 
^ 

o 

H 

1 

i 
4 

S» 

t 

|        * 

^       5       S  •       a       J5 

3B    f    £    | 
S    1    B    i 

t 

in         t* 

• 

wj         cv 

t-i      CM      n      41      10 

• 
i 

£ 

< 

i 

I 

] 

III 

j 

1 
P.     h 

|lg 

i 

«     S 

-^     _     _ 

^ 

q0 

r-l          CM          n 

i 

i 

£ 

•      • 

* 

* 
< 

g 

6P 

i 

o 

M                              fefl             H 

4 
1 

h 

1-1 

t*       10      ff      « 

^   5   a   2 

i 

e- 

•9 

f,         \ 

U                  « 

E             1 
«             ' 

P 
CO           P 

3      f 
o      n 

M 

g      «* 

P.      i! 
£      £ 

•        • 

§     0     S     * 
5     "    o    « 

t-i      CM      n      41 

i 

I 

1 
1 

4.      i 

o    • 

I 

1 

M 

g        5 

• 

9   «H                            | 

B      M 

1 

I 

1       S 

•          T 

!t—  «»H                  er 
«  <3               E 
t> 

g 
o 

o 

g 

i 

o 

CO 

S    0                        E 

B 

S 

fa        » 

c 

1 

a 
a 

O          h 

•  S                * 

H  a         p 

<o                U 

•g  iH                        P 

5 

S 

t 

Pi 

5       5 

•u          g 
Tj           +» 

j 

H 
1 

1 

Jq        < 

0                             H 

JS      £ 

• 

*        ** 

8                                  to 

w 

WJ            9 

rH         CM         CO         ^         IO         « 

g 

g 

24              ' 

V. 

o 

d       ^a 

f 

| 

fc          H 

O             -4J 

•H    O                        >-. 
0.                      § 

« 

o 

E4 

fc 

I  S 

s 

«   4»                          0 
i*                          > 

3                 £ 

Vl    •           M 

o  *»        a 

It     i 

I 

t 

I 

i 

1 

1 

«  1      2 

5a     & 

•w  -d        h 

CO    M   ID    O 

0 

£•* 

V                                 C 

p 

o  *       G 

i 

s 

M 
H 

«  5b       o 

JJ    1 

o  b  Si  * 
i*  <H  a  1 

sill 

c 

i 

. 

0 

<*               iO 

I 

[j 

M 

aj]  a 

O  4*  • 

«1          " 

59 

4>  rH 

1 9 


fl  X  «  I  i 

>-i      CM      n      •Jl      10 


196  HISTORY  OF  PERSONNEL 

Definition  of  Duties.  Having  sifted  the  operations  of  the 
organization  down  to  those  performed  by  each  individual,  one 
comes  to  the  point  where  the  analysis  of  the  individual  job  is 
the  inevitable  step.  The  range  of  each  job  must  be  clear  in 
the  mind  of  the  person  who  is  defining  its  duties.  Consequently 
in  describing  these  duties  no  function  that  the  man  will  natu- 
rally perform,  or  might  in  all  probability  be  called  upon  to 
perform,  must  be  overlooked.  Right  here  is  seen  the  necessity 
for  visualizing  the  man  at  his  work  in  the  Army.  The  rules 
governing  the  expression  of  the  duties  are  too  numerous  to 
discuss  in  this  volume. 

Determination  of  Number  and  Placement  of  Specialists. 
Having  analyzed  the  job  of  each  man,  one  is  now  in  a  position 
to  determine  what  sort  of  a  man  is  needed  in  each  place.  Not 
only  must  one  consider  the  exact  duties  of  the  individual  in 
fixing  his  qualifications,  but  also  his  relation  to  the  functions 
of  the  others  in  the  unit  must  be  taken  into  account. 

An  instance  of  this  sort  of  analysis  of  the  work  of  a  unit 
for  the  purpose  of  deciding  upon  the  placement  of  specialists 
is  seen  in  the  accompanying  diagrams.  Figure  6  shows  the 
organization  of  the  work  of  a  Landing  Gear  Repair  Company 
of  a  Motor  Mechanics  Regiment,  the  primary  function  of 
which  is  to  repair  the  landing  gear  of  forty  airplanes  which 
daily  pass  through  the  regiment  for  repair.  First  appears  the 
function  of  company  administration  which  has  to  do  with  the 
messing,  quartering  and  equipping  of  the  individuals  of  the 
company,  the  factor  constant  for  all  military  units.  The 
operations  of  the  company  vocationally  are  divided  into  four 
parts:  1.  Inspection,  2.  Dismantling,  3.  Assembling,  and  4. 
Stock  Room  Supply.  The  landing  gear  of  the  plane  to  be 
repaired  passes  successively  through  all  of  these  stages. 
These  are  further  subdivided,  as  they  naturally  would,  into 
the  dismantling  of  the  wheels  and  tires,  fittings  and  axles. 
Then  the  number  of  men  needed  to  keep  this  operation  going 
on  forty  planes  daily  is  determined.  How  many  journeymen 
are  required  for  the  more  intricate  processes,  how  many 


PERSONNEL  SPECIFICATIONS 


197 


I1 


ill 

If- 

s* 


'[ 


•§ 


§3 


•t    J 

*  I    .*... 


•  $fe  at  | 

_i  o  PI  93° 

s  o  «g  rj  ja  «-< 

•rt  |H  f*  £j   CQ 


CM 


-^          rt 
a  »          • 


CM  tO 


2 

- 


a  <o     « 

P4 


P,  {3  »!  & 


: «  s  3 

&  •  -^ 

f>>  <H    O 

iH    4> 

§  58 

?  S,^ 

I-  CO 

o  • 

P.  P4    *j 

i  O  g    « 

o  o  a 


o       o  o 
+>  « 

i  *| 


P,l->          0         rt         W 


198  HISTORY  OF  PERSONNEL 

apprentices  to  assist  these  journeymen,  and  how  many  laborers 
to  supply  both,  and  to  assist  in  the  work  of  handling  the 
heavier  pieces.  In  the  second  diagram,  Figure  7,  the  num- 
bers of  such  specialists  are  shown  accordingly  as  they  are 
needed  for  the  different  operations. 

Relation  of  Trade  Ability  to  Army  Grade.  Civilian  occu- 
pation and  degree  of  skill  having  been  discovered,  some 
attempt  must  be  made  to  relate  them  toi  the  army  position 
which  the  specialist  will  occupy.  Expertness  in  a  given  grade 
in  the  army  unit,  functioning  on  vocational  lines  almost 
requires  that  such  expert  be  given  an  army  grade  consistent 
with  his  degree  of  skill  in  civil  life.  The  general  connection 
between  his  civilian  occupation  and  his  army  grade,  however, 
must  be  studied.  The  following  questions  naturally  arise : 

1.  In  connection  with  his  army  duties,  does  he  control 

men,  if  so,  how  many? 

2.  If  the  organization  is  purely  vocational,  will  his  army 

grade  depend  purely  upon  his  experience  at  the 
trade  ? 

In  the  third  diagram,  Figure  8,  appears  the  determination 
of  the  army  grade  of  the  specialists  in  the  company  according 
to  the  relation  that  exists  between  the  duties  of  the  position 
and  the  army  grade. 

Other  Qualifications.  It  is  well  known  that  men  cannot  be 
classified  by  occupations  alone.  This  pertains  to  functions 
they  perform  in  the  army  as  much  as  it  does  to  what  they  do 
in  civilian  life.  The  authority  that  comes  to  a  man  because  of 
his  being  warranted  in  a  particular  grade  must  be  a  matter  of 
concern  to  those  who  draw  up  tables  of  personnel  specifica- 
tions. Indiscriminate  assignment  of  men  to  army  grades  can- 
not usually  be  made  purely  upon  a  basis  of  vocational  ability. 
Whether  or  not  the  man  is  to  be  a  non-commissioned  officer,  is 
not,  however,  the  determining  factor  in  the  consideration  of 
his  other  qualifications.  It  may  happen  he  must  be  poten- 
tially a  non-commissioned  officer  in  which  instance  he  must 
have  leadership  ability.  Likely  he  must  possess  a  certain 


-. 
* 

•  x                     • 

( 

s 

1  1   ilJ  . 

' 

•                rH          "§    B    0    0           2    £  *>                 *« 

•           •           •  ° 

.  rH          >0             v        H              "•          •  " 

t>     B     t>      0     l»    -f 

»,       »<*»     M  S  M  2    cSiS           • 

^"  15  ^    «   Hi  rH 

rni      j^"        ^§b&       £|i"       ^^ 

•    1    •    &    •    « 

*            p     €>     Pi    O            c&R            ?J    ^ 

I 

!b    •        b  5.       ^°5'§'0       IT>  •<            Sol 
P4*PV                 t*-           O                          O           t-3 
0    jo          OO]         t-tOO^i         O   <O  *)               rH 

IB  V  B  B  &  b 

on  5  o  a  ft 

rH               CO  °°         —                           •— 

t 

rrH                            CM                     (O 
£              ^                          - 

• 

CD               CT> 

•     •         0»*»         CO  *>         WrH         «rH 

•  rHrHdrHfl                <d                « 
0                3                3           •    M           •    g 

1 

I 

P  .            * 

a 

•rH          HlO          f-j    8          •«(    O          *4O 
H                     W               CO               0               0 
B     •         rH               rH               rH               rH 

• 

* 

I 

5           ^ 
E          5 

i 

r    0?         rH                W                «»                T<I 

| 

t 

*>          i 

w 

.                   . 

i 

a 

m 

"_       ' 

£ 

<A              f*                                                              ] 

Si 

+>     f 

r 

1  I 

•  "-* 

n 

n 

I3     i 

6 

«     ^ 

*>        a 

"3    n             i- 
§             « 

•s^ 

i  s 

0 

IH                  f 

1 

^ 

5          rM 

(rt          *• 

a  p,       £ 

^    O    0 

ffl          t. 

O          4 

•s 

S 

F 

\t\ 

CO          1- 

§          S 

I.          ^ 

5.3     i 

I 

5 

JKK 

a  i 

*-»         E 

-  -       en  rH 

5  ! 

"5       E 

CM 

? 

s 

8~ 

& 

cJ              xJ 

PI 

•a               ;" 

§ 

M 

9          2 

6-4 
•               o 

8P<rH    P. 

•a   ' 

| 

1       E 

5> 

f 

O 

8        •§  IP              3 

I 

IB 

< 

«           •  rH     • 
rH    60          M           b    • 
«O   iH           B  +>    3  *> 

n       *"  g 

2 

C 

co       o  g  o  g 
•    .      ^3  S  "-»  3 

h     *                99 
O  *»          rH    WCV)    SO 

2  K.     -9  A 
%£     1*. 

P* 

J| 

J                  m  _        m 

L,     4^ 

rH  OT  CM  CO 

0  i-l          0 

V  •g     **  *< 

C 

a           jo 

S.  **      "a 

+>  »       cS  * 

&            +> 

1 

rH 

||     || 

E- 

•               4»          4 

8 

e 

rH                BOO               <d  *> 
O                <0               4»                       On 

4>                     •  o>       o  g  o           rirH 

t 

en 

n       ^*j»M^81^'         *<       • 

E 

P 

S          6«rH         CO    «           •    &    • 

4- 

i 

* 

V          n*>            •    (>>          OCOO                rH^.> 

* 

c 

CO           ^g          ^r^        H>         >»•          O-H^l 

E 

• 

] 

•*>           H   11           0    G         rH    CO   rO    o          t}M<M< 

•       Pifi      >-»  a           S       9 

rH         ^«         rt«S          i**^^         3n<° 

@ 

. 

O         rH  CM  10 


200  HISTORY  OF  PERSONNEL 

amount  of  intelligence  as  determined  by  the  army  mental  tests. 
In  other  places  in  the  Army  it  may  be  necessary  that  his  phys- 
ical qualifications  be  taken  into  account.  Some  positions  are 
more  of  a  strain  upon  the  physique  of  a  man  than  others.  Jn 
many  jobs  in  the  Army,  a  man  with  a  physical  defect  may 
be  used,  if  so,  this  physical  limitation  must  be  specified.  It 
may  be  again  that  for  the  purpose  of  the  job  he  must  have 
a  certain  amount  of  education. 

Army  Schooling.  It  may  be  that  the  army  position  will 
draw  upon  his  trade  ability  only  to  a  small  extent.  It  may  be 
that  no  trade  ability  will  fit  him  for  this  job.  Consideration 
must  therefore  be  given  to  these  three  points.  1.  Can  the 
man  function  in  the  army  directly  from  civil  life  in  a  purely 
vocational  way?  2.  Will  his  civilian  occupation  provide 
merely  a  background  of  knowledge  upon  which  he  must  draw, 
properly  to  function?  3.  Is  it  required  that  he  attend  an 
Army  Training  School  in  order  to  learn  the  duties  of  his  job? 
The  answer  to  any  of  these  three  questions  provides  a  quali- 
fication which  is  in  the  newer  tables,  expressed  as  Army 
Schooling.  Any  or  all  of  these  may  be  important.  It  is 
essential  that  their  potential  importance  be  considered. 

Table  of  Occupational  Organization.  Personnel  Specifica- 
tions in  the  newer  tables,  are  summarized  in  table  form 
showing  relationship  between  occupations  and  army  grades, 
and  indicating  organization  totals.  (See  Figure  9). 

RESULTS  ACHIEVED  THROUGH  THE  USE  OF 
TABLES  OF  OCCUPATIONAL  NEEDS 

The  following  quotation  from  a  letter  of  September  25, 
1918,  is  typical  of  the  attitude  of  many  officers  as  to  the  value 
of  the  specifications. 

"I  believe  that  your  Tables  of  Classification  for  the  Medi- 
cal Department  permit  of  the  organization  of  sanitary  for- 
mations which  are  at  least  doubly  as  efficient  at  the  outset 
as  they  otherwise  could  be,  and  that  even  after  long  train- 
ing the  organizations  created  under  the  hit-or-miss  arrange- 


PERSONNEL  SPECIFICATIONS 


201 


ment  could  never  hope  to  be  even  more  than  fractionally 
as  efficient.  It  is  a  great  step  in  advance  and  something 
I  had  personally  hoped  for  over  25  years." 

Colonel  M ,  Medical  Corps. 


CovnDurruL 

For  Offidil  UM  Only 


|  MODEL— Table  of  Occupation*!  Orjanizalion] 

HEADQUARTERS  COMPANY 
75  MM.  (3-INCH)  FIELD  ARTnAjjRr  REGIMENT 


(Tables  of  Organization  Nc 


T.  O.  O.  14 

i.  13  and  14) 


1 

2 

* 

4 

5 

c 

7 

1 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18J  19  j  » 

21 

22 

23 

i 

Jp  |  Specficalion  No. 

OCCUPATIONAL 
SPECIALISTS. 

Symbol. 

Decree  of  skill 

ARMY  GRADE. 

4 

4) 
I 

|l 

Battalion  Sergeant* 
Major. 

j 

- 
I 

1 

7. 

Supply  Sergeant. 

Stable  Sergeant 

j 

} 

1 

j 

Mechanic* 

Saddler 

, 

Privates,  litClaaa. 

1 

j 

General  Mechanic 

1 

1 

IS 

H.,r*^ocr 

7h 

1 

•JO 

General  Carpenter 

U 

1 

7 

Stockkeeper 

18  i 

i 

ai 

Auto  Chauffeur 

22a 

4 

! 

t 

4 

as 

Motorcyclist 

22m 

I 

:< 

a« 

Honrtnaa 

27 

:, 

.1 

IS 

10 

H 

s 

9uh)«  Boat 

27h 

1 

1 

1  1 

Topographical  Draftsman 

2«tp 

1 

1 

1 

Surveyor,  Topographer 

.iut 

• 

1 

i 

i.-v 

Surveyor.  Transit  and  Level 

30  u 

12 

<i 

3 

12 

11 

TrUfn.rJ.cr.  Operator 

31  t 

l 

1 

1 

l« 

Wireless  Operator 

31  w 

•J 

.i 

II 

1 

10 

Wireless  Radio  Constructor 

31  we 

1 

1 

aa 

Telephone  Operator 

IS 

:! 

Q 

IS 

a7 

Troublemao.  Outnde 

33  to 

1 

:i 

la 

Forest  Ranger 

33  fr 

:•: 

1 

n 

'' 

" 

1  > 

! 

Gen.  Clerical  Worker 

•u     ! 

1 

1 

' 

1 

2 

4 

Stenographer 

Ml 

~ 

; 

.1 

17 

Cook 

40  c 

•• 

= 

i 

0 

Caterer 

40  ca 

' 

1 

• 

Musician,  Band 

44  b 

y 

^W_ 

4* 

aa 

Bugler 

44  bu 

-' 

2 

1 

ai 

Saddler 

47  a 

1 

i 

Gen.  Con.L  Foreman 

SO, 

• 

1 

Office  Manager 

lOoo 

A. 

1 

Tot.li 

J. 

- 

_• 

1 

- 

l 

1 

1 

.1 

1 

1 

-' 

1 

' 

1 

,.i 

41 

IN 

1    :.    :,   •:•      ' 

" 

- 

!- 

a 

Total  Mm            • 

J 

. 

1 

J 

l 

1 

1 

H 

H 

3 

2 

^ 

1 

3 

=7 

" 

H 

M 

FIG.  9 


CHAPTER  15 

DETERMINATION   OF   ARMYS   NEEDS   FOR 
OCCUPATIONAL  SPECIALISTS 

In  the  course  of  the  development  and  expansion  of  the 
Committee  it  was  found  necessary  to  compile  several  sets 
of  statistics  relative  to  the  occupational  qualifications  of 
the  men  who  were  drafted  into  the  Army  and  to  the  occu- 
pational requirements  of  the  Army  itself.  The  immediate 
purpose  of  compiling  such  statistics  was,  in  most  cases,  to 
enable  that  part  of  the  Committee  which  was  assisting 
the  Operations  Branch,  General  Staff  in  its  work  of  assign- 
ing drafted  men  to  army  organizations,  to  perform  this  work 
with  the  added  efficiency  which  full  information  on  the  large 
aspects  of  their  problem  would  make  possible. 

However,  the  value  of  these  statistics  was  by  no  means 
limited  to  the  work  of  distributing  the  draft.  From  the  very 
beginning  of  the  compilation  of  the  Tables  of  Occupational 
Needs  the  figures  on  the  proportions  of  various  kinds  of  spe- 
cialists in  the  draft  were  a  guide  in  so  framing  the  Tables  as  to 
avoid  specifying  a  ridiculously  large  number  of  more  or  less 
rare  men  in  cases  where  men  of  related  occupations  or  of 
lesser  skill  would  serve  nearly  as  well.  The  statistics  were 
also  of  value  in  forecasting  the  occupational  shortages  which 
would  have  to  be  made  up  somehow — by  special  training  in 
camp,  by  special  draft,  by  individual  induction  or  by  train- 
ing in  the  War  Department's  trade  schools — and  thus  to  enable 
the  Operations  Branch  or  the  Committee  on  Education  and 
Special  Training  to  prepare  to  supply  the  anticipated  defi- 
ciencies a  month  or  two  before  they  were  actually  due  to 
occur.  These  uses  to  which  such  statistics  were  put  are  de- 
scribed more  in  detail  in  Chapter  33,  but  it  is  the  purpose 

202 


OCCUPATIONAL  SPECIALISTS  203 

of  this  chapter  to  give  some  of  the  actual  statistics  and  to 
describe  how  they  were  compiled. 

OCCUPATIONAL  REQUIREMENTS  FROM 
JANUARY  1,  TO  MAY  1,  1918 

The  first  important  statistical  investigation  was  undertaken 
early  in  January,  1918,  under  the  direction  of  Dr.  Bingham, 
for  the  specific  purpose  of  demonstrating  the  necessity  of 
establishing  special  Army  trade  schools  to  overcome  the  seri- 
ous shortages  in  skilled  personnel,  with  resulting  retardation 
of  the  Army's  training  program  and  impairment  of  its  effi- 
ciency, with  which  it  would  be  faced  within  the  next  four 
months  unless  energetic  action  was  taken  at  once.  The  result- 
ing figures,  when  brought  to  the  attention  of  the  proper 
authorities,  exerted  considerable  influence  in  leading  to  the 
establishment  of  the  Committee  on  Education  and  Special 
Training  whose  principal  function,  during  the  remainder  of 
the  war  was  to  train,  by  intensive  courses  in  colleges  and 
schools  throughout  the  country,  large  numbers  of  trade  special- 
ists for  technical  army  units. 

This  summary  of  occupational  requirements,  which  is 
printed  below  in  Table  1  is  largely  self-explanatory.  It  will 
be  remembered  that  at  the  time  this  summary  was  prepared 
the  policy  of  calling  into  the  Army  large  monthly  increments 
of  men  had  not  been  adopted.  After  the  first  call  of  the 
draft  in  the  fall  of  1917,  no  more  men  had  been  drafted  and 
in  January  it  was  still  quite  undecided  as  to  when  the  next 
call  would  be  made.  Therefore  the  only  supply  from  which 
specialists  for  technical  units  could  be  drawn  was  from  within 
the  Army  itself  as  then  constituted,  with  the  exception  of  a 
comparatively  small  number  of  men,  who  were  voluntarily 
inducted.  Accordingly  the  first  column  in  the  summary  in- 
dicates the  total  skilled  (journeymen)  personnel  among  the 
779,772  enlisted  men  in  the  National  Army  and  National 
Guard  cantonments  on  December  15,  1917  from  which  prac- 
tically all  the  specialists  for  the  Army  must  come  for  the 


204  HISTORY  OF  PERSONNEL 

next  few  months.  The  second  column  indicates  the  esti- 
mated needs  of  the  thirty  divisions  at  those  cantonments. 
These  estimates  were  based  on  'Chart  B,'  the  fore-runner 
of  the  Tables  of  Occupational  Needs,  and  were  necessarily 
rather  rough  and  imperfect.  The  third  column  indicates  the 
resulting  surplus  or  shortage,  as  the  case  may  be.  The  figures 
in  the  fourth  main  column  were  based  upon  special  state- 
ments from  the  Chiefs  of  all  the  Staff  Corps  as  to  their  esti- 
mated requirements  from  January  1st  to  May  1st,  1918;  and 
in  the  fifth  column  appear  the  estimated  shortages  or  sur- 
pluses. (The  shortages  are  in  black-faced  type.) 

Table  1.  Needs  of  the  Army  for  Enlisted  Men  of  Special  Qualifica- 
tions Reqwred  by  May  1,  1918.1 


Occupation 

Total 
Skilled 
Personnel 

Estimated 
Needs  of  30  E 
Divisions 

Surplus  or  H 
Shortage 

Needs  of  _ 
Staff  Corps  < 

Surplus  or  _, 
Shortage 

Accountant  

1313 

540 

773 

853 

80 

Aeroplane  Mechanic  

49 

49 

6700 

6651 

Artist  

611 

611 

31 

580 

Auto  Driver  

8551 

5880 

2671 

20717 

18046 

Auto  Repairer  

5807 

5340 

467 

5611 

S144 

Baker  

1780 

2220 

440 

2072 

2512 

Barber  

6295 

5880 

415 

1180 

7fiS 

Blacksmith  

1401 

3120 

1710 

4063 

5782 

Boiler  Maker  

.  .  .  .    535 

535 

164 

371 

Bookkeeper  

3940 

540 

3400 

670 

2730 

Bridge  Carpenter  

222 

222 

2379 

2157 

Butcher  

2150 

420 

1730 

289 

1441 

'This  estimate  Is  made  without  allowance  for  the  skilled  men  needed 
In  the  Regular  Army  Divisions  now  forming-,  some  of  whom  will  doubtless 
be  Included  among-  the  troops  to  be  transferred  from  the  National  Army 
to  the  Regular  Army.  Neither  is  any  account  taken  of  possible  demands  of 
the  Expeditionary  Forces  for  technical  men.  Over  against  these  consider- 
ations stands  the  fact  that  the  National  Army  has,  in  certain  vocations, 
a  reserve  of  partly  skilled  men  not  included  in  these  totals,  but  capable  of 
being  trained  to  the  technical  work  required. 


OCCUPATIONAL  SPECIALISTS 

205 

Table  1.  Needs  of  the  Army  for  Enlisted  Men 
tions  Required  by  May  1,  1918. 

of  Special  Qualifica- 

Occupation 

Total 
Skilled 
Personnel 

Estimated 
Needs  of  30  S 
Divisions 

Surplus  or  y 
Shortage 

Needs  of 
Staff  Corps  << 

Surplus  or 
Shortage 

Care  and  Handling  Horses... 
Canvas  Worker   

14883 
110 
3 
134 
4810 
227  ' 
39 
18058 
1227 
3362 
875 

386 
1141 
1296 
245 

3245 
1596 

353 
163 

1848 

1808 
48 
1202 
135 

460 
421 

1087 

391 

72 
308 

61860 
120 

120 

10500 

120 
11220 
5430 
17880 

300 
2190 
1530 

4170 

1530 

1470 

150 
270 

2130 

5220 

300 

46977 
10 
3 
14 
5690 
227 
81 
6838 
4203 
14518 
875 

86 
1049 
234 
245 

925 
1596 

1177 
163 
1848 

338 
48 
1052 
135 

1670 
421 
4133 
391 
228 
308 

4874 
1087 
37 
700 
4500 

5975 
919 
7402 
1103 

3325 
1335 
950 

5605 
1628 

1843 

251 

277 
817 

9723 

1228 

1085 
536 
840 

1494 
1287 
45 

51851 
1097 
34 
686 
10190 
227 
81 
863 
5122 
21920 
228 

86 
4374 
1569 
705 

6530 
32 

1843 

1428 
114 
1031 

9385 
48 
1052 
1363 

2755 
115 
4973 

1103 
1515 
263 

Carbon  Lamp  Man  

Carrier  Pigeon  Expert  

Carpenter    

Chemical  Industry  Worker  .... 
Chiropodist    

Clerk    

Concrete  and  Cement  Worker.  . 
Cook    

Construction  Foreman   

Dentist    

Draftsman   

Drucforist   . 

Dynamo  Expert  

Electrician   

Engineer  Graduate   

Engineer,     Locomotive.        (Sec 
Fireman)    

Farrier   

Firefighter   

Foundryman    

Gasoline  Engine  Repairman  .  .  . 
Gas  Works  Man  

Grocer  

Gunsmith    

Harness  Maker   

I  loistman    

Horse  Shoer  

Inspector    

Instrument  Repairer    

Interpreter    . 

206                 HISTORY  OF  PERSONNEL 

Table  1.  Needs  of  the  Army  for  Enlisted  Men  of  Special  Qualifica- 
tions Required  by  May  1,  1918. 

Occupation 

Total 
Skilled  _ 
Personnel 

Estimated 
Needs  of  30  ^ 
Divisions 

Surplus  or  >- 
Shortage 

Needs  of  ,_« 
Staff  Corps  ^ 

Surplus  or  ^ 
Shortage 

Laboratory  Worker   

159 
228 
2025 
66 
2555 
1248 

5476 
1272 
243 
138 
160 
3871 
530 
459 
7402 

93 
321 

3228 
405 
507 
108 
3554 
168 
733 
1944 
136 
7 

365 

102 
2929 

540 
1920 

720 

5580 

5400 
180 
1320 
12780 

12000 
540 

5730 
3720 

4740 
720 

720 

240 

381 

228 
105 
66 
2555 

528 

104 
1272 
243 
138 
160 
1529 
350 
861 
5378 

93 
11679 

2688 
405 
5223 
108 
166 
168 
4007 
1224 
136 
7 

355 

102 

2689 

98 
3095 
18 
1805 
1976 

8068 
283 

280 
316 
446 
359 
837 
2941 

1225 
295 
1516 

1353 
611 

300 

608 

5232 
1034 

381 
130 
2990 
48 
750 
1448 

8172 
989 
243 
142 
156 
1975 
9 
1698 
8319 

93 
11679 

1463 
110 
6739 
108 
1519 
168 
4007 
613 
136 
7 
300 

963 

5130 
1655 

Laundry  Expert  

Lineman   

Locksmith    

Locomotive  Fireman  

Lumberman   

Machinist  

Mason    

Medical  Student  

Metal  Finisher  

Millwright    

Miner    

Moving  Picture  Expert  

Mule  Packer  

Musician    

Navigator  

Nurse    

Painter    

Pattern  Maker   

Photographer    .  .  .*  

Physician    

Pipe  Fitter  and  Plumber  
Plaster  Molder  

Policeman  (M.  P.)    

Printer    

Purchasing  Agent   

Psychological  Examiner  

Propeller  Maker  

Quarryman       and       Explosives 
Expert    

R.  R.  Construction  Man  

R.  R.  Operating  Man  . 

OCCUPATIONAL' SPECIALISTS  207 

Table  1.  Needs  of  the  Army  for  Enlisted  Men  of  Special  Qualifica- 
tions Required  by  May  1,  1918. 


I 

II 

III 

IV 

V 

73 

'g  «   2 

•M     •*"       £ 

-      u 

M 

c    >- 

t    *> 

c    bo 

oj    0^    c 

08     0     2 

.£    ^ 

(A      ® 

VJ        (1 

Occupation 

o  H  i 

c   ^  .2 

•—    u 

OH    O 

no  O 

"H.  o 

*"*  en  fe 

"^  «  3 

3   "^ 

5Z    sj 

3    •« 

2 

W  fc 

en  M 

en 

en  M 

R.  R.  Shop  Mechanic  

161 

161 

37 

124 

Rigger    

476 

360 

116 

593 

477 

Sanitary  Expert  

26 

26 

26 

Seafaring  Man   

813 

600 

213 

186 

27 

Section  Hand  (see  R.  R.  Const.) 

1452 

1452 

1452 

Sheet  Metal  Worker  

1256 

180 

1076 

1630 

554 

Shipper  

1001 

1080 

79 

79 

Shoemaker     

977 

2130 

1153 

287 

1440 

Steam  Engineer   

2153 

960 

1193 

1459 

266 

Stenographer    

4263 

3000 

1263 

1800 

537 

Stockkeeper  

1246 

540 

706 

1606 

900 

Struc.  Steel  &  Iron  Worker  

676 

676 

367 

309 

Surveyor    

719 

2460 

1741 

2105 

3846 

Tailor    

1670 

1080 

590 

1782 

1192 

Technical  Instructor  

17 

17 

17 

Telegrapher    

1688 

3390 

1702 

7839 

9541 

Telephone  Operators   

393 

5190 

4797 

4797 

9594 

Telephone  Repairer  

611 

3540 

2929 

2938 

5867 

Tool  Maker  

344 

344 

527 

183 

Truck  Driver  

4228 

27450 

23222 

30184 

53406 

Typewriter    

1043 

3000 

1957 

1722 

3679 

Undertaker  

196 

196 

8 

188 

Ventilation  Expert   

8 

3 

81 

78 

Veterinary  

226 

660 

434 

1341 

1775 

Vulcanizer    

197 

197 

328 

131 

Watchmaker  

346 

120 

226 

18 

208 

Water  Supply  Man  

44 

44 

196 

132 

Welder    

164 

120 

44 

457 

413 

Wheelwright    

129 

420 

291 

1129 

1420 

Wireless  Constructor  

10 

120 

110 

110 

Wireless  Operator  

209 

1740 

1531 

7575 

9106 

208  HISTORY  OF  PERSONNEL 

OCCUPATIONAL  CENSUS  OF  NATIONAL  ARMY 

(1917) 

Immediately  after  the  preparation  of  the  above  summary, 
work  was  started  on  another  tabulation  which  proposed  to 
indicate  the  numbers  of  journeymen  and  apprentices  in  each 
occupation  in  the  first  draft  call  of  1917.  It  was  found  nec- 
essary to  omit  the  men  transferred  to  National  Guard  Divi- 
sions, because  no  occupational  record  of  these  transfers  was 
available.  When  completed,  however,  the  summary  was  based 
on  a  total  of  approximately  425,000  men  including  men  in 
National  Army  camps  on  December  15,  1917  and  all  men  who 
had  been  transferred  therefrom  except  to  National  Guard 
Divisions.  For  convenience  the  figures  were  reduced  to  a 
basis  of  100,000  men;  i.  e.,  it  was  stated  that  among  the  total 
of  425,000  men,  there  were  1311  skilled  accountants  and  1034 
partly  skilled  accountants  to  each  100,000.  This  scheme  of 
employing  a  common  basis  of  100,000  men  so  simplified  com- 
parisons of  different  sets  of  figures  that  it  was  used  in  prac- 
tically all  similar  statistical  tables  thereafter. 

GENERAL  PERSHING'S  SIX-PHASE  PROJECT 

Upon  the  receipt  of  General  Pershing's  six-phase  project 
for  the  construction,  step  by  step,  of  a  well-balanced  oversea 
Army,  the  Chiefs  of  the  various  Staff  Corps  were  asked  to 
define  in  terms  of  occupations  the  requirements  of  the  units 
which  would  be  organized  under  their  jurisdiction.  The  re- 
sulting reports  were  then  summarized  occupationally  by  the 
Central  Distributing  Office  of  the  Committee  and  used  as  a 
guide  in  distributing  the  draft  as  soon  as  monthly  calls  began 
to  be  made. 

OCCUPATIONAL  STATISTICS  OF  DRAFT 
INCREMENTS  OF  1918 

After  draft  calls  began  to  be  made  monthly,  it  -became  the 
custom  to  compile  occupational  summaries  of  each  of  them 


OCCUPATIONAL  SPECIALISTS  209 

on  the  100,000  basis,  which  is  described  above.  The  study 
of  the  July  22nd  draft,  covering  over  200,000  men,  is  prob- 
ably the  most  reliable  of  any  of  these  single-draft  summaries. 
The  large  number  of  men,  the  well-distributed  sources  from 
which  they  came,  the  variety  of  occupations  represented  (over- 
300  sub-occupations),  the  fact  that  practically  all  the  men 
were  inducted  at  camps  which  were  exceptionally  well- 
equipped  to  interview  and  classify  them,  and  the  particular 
oare  that  was  taken  in  making  the  tabulation  all  conduced  to 
making  this  summary  a  particularly  valuable  one.  Although 
it  is  too  detailed  to  be  reproduced  here,  it  has  been  combined 
with  subsequent  reports  and  condensed  into  a  form  suitable 
in  this  volume.  In  this  condensed  form  the  more  than  300 
sub-occupations  have  been  combined  into  less  than  100  main 
headings  and  no  differentiation  has  been  made  between  jour- 
neymen and  apprentices.  The  figures  are  based  on  a  total 
of  427,048  general  service  white  men  in  the  draft  increments 
of  July  22nd,  August  26th,  and  September  3rd,  but  they  have 
been  reduced  to  a  basis  of  100,000  men  in  order  that  they 
might  be  compared  with  such  figures  as  those  in  the  second 
column,  representing  the  requisitions  submitted  by  the  Staff 
Corps  reduced  to  the  same  basis.  These  requisitions,  received 
between  July  1st  and  November  1st,  1918,  represent  423,865 
men.  The  hundreds  of  thousands  of  men  whom  the  Opera- 
tions Branch  'requisitioned'  for  Infantry  and  Field  Artillery 
are  not  included  in  this  total.  The  figures  in  the  second  col- 
umn must  not,  therefore,  be  taken  as  typical  of  the  entire 
Army,  but  only  of  the  specialized  organizations  of  the  Staff 
Corps. 

Table  %.  Showing  Probable  Supply  of  the  Army  and  Demand  of  the 
Staff  Corps  for  Occupational  Specialists 

Demand  by 

Symbol  Occupation  Probable  Supply  Staff  Corps 

per  100,000  per  100,000 

6  Machinist  and  Mechanic 1970  4835 

7  Blacksmith   708          3730 

8  Carpenter  2301          2976 


210                  HISTORY  OF 

PERSONNEL 

Table  2.  Showing  Probable  Supply 

of  the  Army  and  Demand  of  the 

Staff  Corps   for   Occupational  Specialists 

Demand  by 

Symbol             Occupation 

Probable  Supply  Staff  Corps 

per  100,000  per  100,000 

9     Concrete  or  Cement  Worker 

376              44 

10    Electrician    

687           1219 

11     Gunsmith    

30             608 

12     Miner  and  Quarry  Worker 

1724            665 

13     Painter    

810            435 

14     Pipefitter    

770            761 

15     Railroad  Operating  Man   .  . 

921           1153 

16     Road  Worker   

874            314 

17    Engineman  and  Fireman  .  . 

1762           1770 

18     Stockkeeper   

1292           1984 

19    Sheet   Metal   Worker  

276            286 

20     Foundryman    

489              52 

21     Structural  Steel  Worker   .  . 

312            339 

22    Chauffeur    

5686           5581 

23    Chauffeur,  Heavy  Truck  .  . 

1906           7538 

24     Auto  Mechanic  

2139           7633 

25     Gas  Engineer  or  Repairman 

622            344 

26     Bricklayer    

495            370 

27     Horseman  

14854           5951 

28     Farrier  and   Veterinarian    . 

38            635 

29    Draftsman    

118            722 

30    Surveyor  

81           1158 

31     Telegraph  or  Wireless  Man 

225          2665 

32     Lineman  and  Cableman   .  .  . 

335           1540 

33    Telephone  man   

134            921 

34     Photographer     

105              92 

35    Lumberman    

2021           3144 

36     Mariner  and  Boatman   

199             146 

37     Accountant     

191              39 

38     Clerical  Worker   

3990          3820 

39    Stenographer  and  Typist  .  .  , 

779           1953 

40     Baker  and  Cook  , 

1318          3565 

41     Butcher   

622            566 

42     Merchant  

447             105 

43     Medical  man   , 

283              84 

44     Musician   

449           1874 

45     Barber     

506            352 

47     Leather  Worker   

344            743 

48     Tailor  

504            507 

OCCUPATIONAL  SPECIALISTS  211 

Table  2.  Showing  Probable  Supply  of  the  Army  and  Demand  of  the 
Staff  Corps   for   Occupational  Specialists 

Demand  by 

Symbol  Occupation  Probable  Supply  Staff  Corps 

per  100, 000  per  100.000 

49  Inspector    69  271 

50  Construction  Foreman    157  1203 

61     Airplane  Mechanic    37  1695 

63    Boiler  Maker 248  301 

65  Balloonist  1  49 

66  Pigeon  Fancier 35  5 

67  Chemist  and  Chemical  Worker1 181  60 

68  Fire  Department  Man   68  47 

69  Gas  Plant  Worker 2  67 

70  Crane  Operator   248  392 

72     Instrument  Maker  and  Repairman   ....  70  254 

74  Bacteriologist    11  12 

75  Laundryman    120  277 

76  Canvas  Worker 20  199 

77  Compressor  Operator   11  3 

79  Millwright    73  114 

80  Cooper   61  18 

82     Policeman  and  Detective  119  297 

84     Purchasing  Agent   89  10 

88  Sanitarian    3  26 

89  Mathematician  9  61 

90  Mule  Packer  14  13 

91  Munitions  Worker  231 

94  Rubber  Worker   169  197 

95  Water  Supply  Man  19  75 

%    Welder,  Cutter  86  168 

98     Refrigeration  Operator   12  51 

100     Rigger  and  Cordage  Worker 30  324 

102     Transportation  Man   32  684 

105  Civil  Engineer 45  41 

106  Commercial  Engineer   15  3 

Miscellaneous  and  Unclassified   45345         19633 

(Includes  factory  workers,  farmers, 
laborers,  lawyers,  teachers,  business 
men  and  salesmen  who  are  not  experi- 
enced in  any  other  occupation) 


'Note:  Names  of  drafted  chemists  were  referred  to  Chemical  Warfare 
Service  for  placement.  Hence  there  was  no  necessity  for  requisitioning 
them.  The  demand  greatly  exceeded  the  supply. 


212  HISTORY  OF  PERSONNEL 

OCCUPATIONAL  STATISTICS  OF  THE  A.  E.  F. 

A  very  interesting  report  covering  the  qualifications  of 
approximately  600,000  men  of  the  A.  E.  F.  was  prepared 
in  France  during  January,  1919.  It  is  unusually  complete 
and  gives  in  great  detail  the  number  of  journeymen  and  ap- 
prentices in  each  of  704  occupations  in  the  Army  and  Corps 
troops  of  the  1st  and  2nd  Armies,  in  each  of  sixteen  divisions 
and  in  each  of  the  Staff  Corps.  It  also  distinguishes  be- 
tween main  and  secondary  occupations.  The  report  occupies 
an  immense  volume  of  over  ninety  very  large  pages,  and  is 
far  more  elaborate  than  any  of  the  summaries  described 
above,  which,  having  been  prepared  primarily  to  assist  the 
Committee  in  prosecuting  the  war  and  not  as  records  for  the 
information  of  experts  after  the  war,  were  gotten  up  as  simply 
and  with  as  little  detail  as  possible.  The  A.  E.  F.  report 
was  summarized  in  two  forms:  (a)  by  organizations,  and 
(b)  by  main  occupations.  This  second  summary,  with  the 
text  of  the  letter  accompanying  the  report,  is  reproduced 
below.  It  will  be  noticed  that  five  occupations,  which,  in  all 
reports  and  summaries  prepared  in  the  United  States  were 
combined  under  the  heading  'Unclassified'  because  they  were 
of  slight  military  value,  are  listed  in  detail  in  the  A.  E.  F. 
tabulation.  This  accounts  for  the  very  small  number  of  'un- 
skilled' men.  These  five  occupations  are:  Factory  Worker, 
Farmer,  Laborer,  Lawyer,  and  Teacher,  and  Business  Man 
and  Salesman. 

PERSONNEL  DIVISION 

CENTRAL  RECORDS  OFFICE 

ADJUTANT   GENERAL'S   DEPARTMENT 

AMERICAN  EXPEDITIONARY  FORCES 

FRANCE 

February  8,   1919. 
From:       Personnel     Division,     Central     Records     Office, 

A.  P.  O.  902. 

To:  Statistical  Division,  G.  H.  Q.  A.  E.  F. 

Subject:  Occupational  Report  for  January  10,  1919. 

1.     The  following  report  of  the  occupational  strength  of 


OCCUPATIONAL  SPECIALISTS  213 

the  A.  E.  F.  as  of  January  10,  1919,  is  herewith  submitted. 
This  report  is  a  compilation  of  the  reports  made  by  such 
units  of  the  A.  E.  F.  which  had,  on  the  above  date,  the 
qualification  cards  of  the  enlisted  personnel  completed  and 
in  proper  condition  to  submit  the  required  information. 

2.  The  Index  of  Occupations   (From  CCP-4)   includes 
704   items   and   this   report   shows  the   number   of   enlisted 
men  in  the  units  of  the  A.  E.  F.  reporting  which  have  had 
experience  in  these  itemized  occupations,  if  they  are  skilled 
or  partly   skilled   therein,   and   also   a  distinction   is   made 
between  their  main  and  secondary  civil  occupation. 

3.  The  Personnel  Adjutant  of  each  reporting  unit  for- 
warded tally  sheets  compiled  by  him  to  the  Central  Records 
Office  and  the  Personnel  Division  thereof  has  consolidated 
this  information  and  assembled    it    in    detail    within    this 
report.     The  report  of  those  units  of  Staff  Corps  such  as 
Air  Service  and  Engineers  which  are  attached  or  assigned 
to  Armies,  Corps  or  Divisions  are  included  in  the  totals  of 
the  respective  Armies,  Corps  and  Divisions  and  not  in  the 
totals  of  the  Staff  Corps. 

4.  For  the  combat  units  which  reported  the  qualification 
cards  tallied  represent  approximately  75  per  cent,  of  the 
total  strength  of  the  combined  organizations  and  the  reports 
for  other  units  represent  a  somewhat  smaller  percentage  of 
the  total  strength.     This  report,  therefore,  covers  approxi- 
mately 600,000  men  of  the  A.  E.  F. 

H.  D.  McBRIDE, 

Major,  A.  G.  D. 

Table  3.  Index  and  Tabulation  by  Primary  Occupation  Showing 
Vocational  Skill   in  American   Expeditionary   Forces 

Occupation  Main  Occupation          Secondary 

Occupation 

Skilled  Pt.  Skilled  Skilled  Pt.  Skilled 

Accountant    1311  1034  233  666 

Airplane  Mechanic 203  152  323  393 

Architect    65  62  26  42 

Artist  289  208  39  125 

Auto  Mechanic  9004  9400  2075  8190 

Bacteriologist    58  45  22  57 

Baker  and  Cook  6205  7073  703  4209 


214                  HISTORY  OF 

PERSONNEL 

Table  3.  Index  and  Tabulation  by  Primary  Occupation  Showing 
Vocational  Skill  in  American  Expeditionary  Forces  (Con't) 

Occupation 

Main  Occupation          Secondary 
Occupation 

Skilled  Pt.  Skilled  Skilled  Pt.  Skilled 

Balloonist   

13 

4 

9 

9 

Banker  and  Broker  

62 

89 

8 

33 

Barber   

2088 

1711 

137 

851 

Blacksmith   

2763 

3162 

328 

1825 

Boilermaker   

1036 

1018 

102 

395 

Bricklayer    

1390 

1079 

144 

572 

Brush  Maker  

26 

14 

4 

8 

Business  and  Salesman  

6875 

11154 

941 

4165 

Butcher  

2398 

2406 

235 

1308 

Canvas  Worker  

74 

130 

28 

71 

Carpenter    

7025 

7794 

864 

5311 

Chauffeur    

10057 

16199 

4290 

19323 

Chauffeur,  heavy  truck   

4970 

6788 

1904 

6283 

Chemist  and  Chemical  Worker  .  . 

365 

562 

87 

226 

Civil   Engineer    

412 

265 

42 

104 

Clerical  Worker  

14642 

25577 

2323 

12019 

Commercial  Engineer   

82 

23 

12 

23 

Compressor  Operator  

27 

35 

14 

43 

Concrete  and  Cement  Worker   .  . 

1052 

1764 

318 

1435 

Construction  Foreman  or  Supt  .  . 

1074 

675 

262 

788 

Cooper     

190 

185 

30 

78 

Crane  Operator,  hoistman  * 

817 

850 

148 

439 

Detective  and  Policeman  

410 

455 

53 

260 

Dog  Trainer   

9 

35 

6 

38 

Draftsman    

1046 

1446 

250 

925 

Education  —  extent  of  

12fi7 

3670 

4228 

21100 

Electrician    

4290 

4715 

538 

2559 

Employment  Manager   

30 

51 

3 

18 

Engineman  and  Fireman  

5340 

11202 

830 

4044 

Engraver,  Stencil  and  Die   

38 

54 

4 

18 

Factory  Worker  

4556 

11080 

683 

4957 

Farmer    

34520 

78003 

3276 

17567 

Farrier  and  Veterinarian   

227 

379 

117 

303 

Fire  Department  Man   

175 

193 

45 

123 

Foundrvman    

1637 

2622 

200 

985 

Gas  Plant  Worker  

73 

71 

24 

41 

(las  Engineman  Repairman   

988 

1327 

397 

1592 

OCCUPA  TIONAL  SPECIALISTS 

215 

Table  5.  Index  and  Tabulation  by  Primary  Occupation  Showing 
Vocational  Skill  in  American  Expeditionary  Forces  (Con't) 

Occupation 

Main  Occupation          Secondary 

Occupation 

Skilled  Ft.  Skilled 

Skilled  Ft.  Skilled 

Gunsmith,  Armorer  

208 

368 

65 

213 

Heating  Vent.  Engineer   

30 

28 

6 

25 

Horseman     

10688 

30667 

3363 

23543 

Hydraulic  Press  Oper.    

26 

12 

2 

19 

Inspector    

616 

729 

125 

520 

Instrument  Maker  and  Repairer 

806 

665 

84 

229 

Interpreter  —  French    

270 

514 

1167 

2415 

Interpreter  —  German    

578 

1020 

3053 

5641 

Interpreter  —  Other  Languages  .  . 

979 

826 

5185 

11238 

Laborer  

8685 

29349 

839 

7181 

Laundryrnan    

335 

401 

30 

139 

Lawyer  and  Teacher  

1510 

2051 

223 

967 

Leather  Worker  

1950 

2360 

155 

1033 

Lineman  and  Cableman  

2015 

2021 

219 

1419 

Lumberman    

2469 

5020 

492 

2712 

Machinist  and  Mechanic  

11806 

14691 

1094 

5729 

Mariner  and  Boatman   

976 

1579 

126 

947 

Mathematician,  expert   

4 

1« 

4 

7 

Medical  Man  

2302 

1839 

166 

590 

Merchant,  Jobber  or  Wholesaler 

1457 

1862 

215 

1176 

Metal  Finisher   

274 

334 

41 

128 

Millwright    

250 

336 

58 

196 

Miner  or  Quarry  Worker   

5004 

7235 

475 

2529 

Mule  Packer   

38 

51 

30 

60 

Munitions  Worker  

258 

616 

90 

422 

Musician,  Band  

1317 

1680 

457 

117 

Painter    

3283 

3788 

340 

2398 

Photographer    

1040 

949 

237 

1085 

Physicist   

16 

7 

5 

8 

Pigeon  Fancier  

73 

112 

53 

204 

Pipefitter    

3658 

4589 

482 

2715 

Plasterer  

283 

250 

108 

88 

Printer    

2517 

2729 

231 

1153 

Psychologist     

3 

8 

4f 

Purchasing  Agent    

250 

229 

39 

163 

Railroad  Operating  Man  

6183 

5141 

664 

2266 

Refrigeration  Operator  

104 

93 

12 

58 

216 


HISTORY  OF  PERSONNEL 


Table  8.  Index  and  Tabulation  by  Primary  Occupation  Showing 
Vocational  Skill  in  American  Expeditionary  Forces  (Con't) 


Occupation 

Main  Occupation          Secondary 

Occupation 

Skilled  Pt, 

Skilled 

Skilled  Pt. 

Skilled 

Rigger  and  Cordage  Worker  .  .  . 

287 

310 

103 

241 

Roadworker     

1629 

4866 

279 

2013 

Rubber  Worker  

605 

677 

94 

376 

Sanitarian  

46 

29 

11 

24 

Sheet  Metal  Worker  

1548 

2197 

202 

1045 

Stenographer  and  Tvpist   

2219 

2533 

794 

3713 

Stevedore    

514 

820 

37 

216 

Stock,  Stores,  Keeper  

2945 

6386 

667 

3857 

Structural   Steel   Worker    

1503 

1796 

181 

894 

Surveyor  

435 

644 

145 

535 

Tailor  

1534 

1900 

95 

758 

Telegraph  and  Wireless  Man   .  . 

2262 

1377 

146 

1090 

Telephone  Man  

1160 

1167 

194 

1204 

Transportation  Man   

249 

153 

60 

122 

Undertaker    .  .  :  

233 

219 

17 

62 

Upholsterer  and  Trimmer  

201 

126 

24 

72 

Water  Supply  Man  

89 

91 

7 

64 

Welder,  Cutter  

257 

218 

63 

181 

Writer  

334 

319 

41 

117 

Miscellaneous,    unlisted    occupa- 

tions    

425 

399 

11 

27 

Total    219,915    365,163      49,491    221,549 


Total    Skilled    and    Partly 

Skilled 

Add — Number    unskilled 
Men  . 


219,915 

585,078 
7,776 


49,491 


271,040 


Total  number   of  men   on 
whom  report  is  made  592,854 


CHAPTER  16 

JOB-ANALYSIS    APPLIED   TO   DUTIES    OF 
OFFICERS 

The  method  of  classifying  officers  according  to  their 
previous  civil  experience  was  entirely  different  from  that  of 
enlisted  men.  This  led  to  a  noticeable  difference  in  the  study 
of  job  analysis  for  officers  and  enlisted  men.  Personnel 
specifications  for  officers  were  not  developed  so  early  as  were 
those  for  enlisted  men,  nor  so  extensively,  nor  in  so  great 
detail.  The  main  reason  for  this  was  that  enlisted  specialists 
perform  very  largely  in  the  army  the  same  duties  they  do  in 
industry.  Officers  who  are  specialists,  on  the  other  hand, 
direct  occupational  work,  but  do  not  perform  it.  And  so  far, 
good  personnel  specifications  for  executives  and  administrators 
have  been  exceedingly  difficult  to  write.  For  example,  contrast 
the  ease  of  describing  what  a  bridge  carpenter  will  have  to 
do  in  an  engineer  regiment  with  the  difficulty  of  recording 
what  his  captain  has  to  do. 

The  system  of  classifying  civilian  experiences  of  officers  is 
discussed  in  this  chapter,  whereas  the  subject  of  personnel 
specifications  for  officers  is  taken  up  in  the  following  chapter. 

CLASSIFICATION  OF  OCCUPATIONS  FOR  OFFICERS 

The  First  Officers  Qualification  Card.  The  first  card  was 
printed  on  November  5,  1917.  This  was  a  5x8  inch  card 
(see  Figure  21,  Chapter  42)  and  was  used  in  several  divi- 
sions about  to  sail  for  France  and  in  many  posts  of  the  Coast 
Artillery.  At  the  time  the  cards  were  printed  there  existed 
only  the  small  Index  of  Occupations  of  October  20th  con- 
taining but  86  occupational  groups  and  165  sub-divisions. 
This  list  was  thoroughly  unsatisfactory  for  the  use  of  classi- 

217 


218  HISTORY  OF  PERSONNEL 

fying  officers  as  it  contained  hardly  an  item  but  those  of  trades- 
men, whereas  officers,  as  leaders,  must  be  classified  largely  in 
terms  of  executive  and  administrative  positions.  Dr.  James 
R.  Angell,  in  consequence,  prepared  a  list  of  74  occupational 
group  headings,  some  of  which  were  subdivided.  For  example, 
"Inspector"  was  subdivided  into  14  items.  To  give  an  idea  of 
these  groupings  the  first  twenty  are  listed: 

1.  Accountant  15.  Contractor 

2.  Architect  16.  Computer 

3.  Armorer  expert  17.  Dentist 

4.  Army  paper  expert  18.  Druggist 

5.  Artist,  including  camouflage      19.  Electrotype  expert 

6.  Balloon  expert  20.  Engineer 

7.  Banker  a.  Aeronautical 

8.  Blue  print  expert  b.  Automotive 

9.  Broker  c.  Chemical 

10.  Cable  worker  expert  d.  Civil 

11.  Carrier  pigeon  expert  e.  Electrical 

12.  Castor  bean  expert  f.  Mechanical 

13.  Conservation  expert  g.  Mining 

14.  Contract  expert  h.  Sanitary 

The  74  occupational  groups  were  to  be  tabbed  by  the  use 
of  four  colored  tabs.  Index  numbers  1  to  52  were  to  be 
marked  by  orange  or  green  tabs  according  to  the  skill  of  the 
officer  at  the  occupation.  Index  numbers  53  to  78  were  stag- 
gered with  the  numbers  1  to  52  and  were  to  be  tabbed  with 
yellow  and  blue  tabs.  Experience  soon  showed  that  this 
idea  was  not  convenient.  Later  experience  has  taught  that 
a  tabbing  system  of  four  colors  on  two  rows  of  index  num- 
bers is  too  complicated  to  be  installed  in  a  large  organization 
involving  the  work  of  many  officers  and  enlisted  men. 

Later  Officers'  Qualification  Cards.  Because  the  Novem- 
ber 5th  card  did  not  contain  reference  to  military  qualifications 
it  was  necessary  to  revise  it  in  order  to  include  such  informa- 
tion. And  because  of  the  inadvisability  of  tabbing  78  items 
on  a  5x8  card  the  whole  question  of  revising  the  occupational 
list  was  brought  up.  After  considerable  study  it  was  deter- 


JOB-ANALYSIS  219 


mined  that  47  numbers  should  be  allotted  to  occupational 
experience  and  20  additional  numbers  for  military  experience 
and  miscellaneous  items.  A  total  of  67  index  numbers  forced 
the  use  of  a  1 1  inch  card.  In  cutting  down  the  74  original 
occupational  groups  to  47  it  was  necessary  to  group  many  of 
them  together  under  one  heading.  Thus,  No.  1  "accountant" 
and  No.  57  "statistician"  were  included  under  the  new  head- 
ing, "Accounting  and  Clerical  Worker";  No.  7  "Banker"  and 
No.  9  "Broker"  under  the  new  heading  "Banker  or  Broker." 
Several  items  were  eliminated,  e.  g.,  "Armorer  expert,"  as 
being  the  work  an  enlisted  man  would  do,  not  an  officer; 
"Army  paper  expert,"  as  a  purely  military  qualification ;  "Blue 
print  expert,"  not  an  officer's  duty;  etc.  And  on  the  other 
hand  several  new  items  were  added,  mainly  as  sub-divisions, 
however.  In  the  main,  items  were  grouped  on  the  basis  of  the 
industry  as  it  was  felt  that  the  civil  experience  of  the  officer 
would  be  used  as  fitting  him  to  direct  others  in  much  the  same 
way  that  administrators  direct  subordinates  in  industry. 
Moreover,  when  officers  are  requisitioned  in  terms  of  de- 
signated civilian  experience  they  are  generally  called  for  in 
terms  of  the  general  field  of  activity  in  which  they  are  to  be 
used.  For  example,  they  are  asked  for  as,  railroad  men,  as 
lumbering  men,  as  construction  men,  etc.  This  is  not  the  ideal 
manner  and  the  Army  was  gradually  educated  up  to  stating 
specifically  what  the  officer  was  to  do.  But  in  January,  1918, 
it  was  the  common  procedure  and  the  card  was  prepared  with 
that  situation  in  mind. 

To  meet  these  considerations  a  8^x11  card  was  issued  on 
January  5th,  1918,  (illustrated  as  Figure  22,  Chapter  42). 
This  card  has  been  revised  several  times,  the  last  time  on 
October  1st,  1918,  but  the  changes  have  been  cf  minor  char- 
acter and  have  been  primarilv  for  the  purpose  of  better  fitting 
the  card  for  use  in  one  Staff  Corps  or  another  as  its  use  \vas 
extended  to  them.  During  this  time  the  list  of  occupations 
was  changed  in  only  one  respect  as  to  main  group  headings. 
"Meteorologist"  was  included  under  "Physicist"  and  "Metall- 


220  HISTORY  OF  PERSONNEL 

urgist"  was  put  in  its  place.     The  number  of  sub-divisions, 
however,  was  increased  from  143  to  173. 

Recommendations  as  to  a  New  Officers'  Qualification  Card. 
Was  the  development  of  a  different  occupational  classification 
for  officers  from  that  of  enlisted  men  a  wise  procedure?  We 
have  seen  that  the  officers'  list  did  develop  because  the  Index 
of  Occupations  for  enlisted  men  was  inadequate  for  the  pur- 
pose in  January,  1918.  But  since  the  present  Index  of  Occu- 
pations does  cover  all  the  items  on  the  officers'  qualification 
card  there  seems  no  reason  now  why  it  should  not  be  substi- 
tuted for  the  present  list  of  occupations  on  the  officers'  card. 
This  will  provide  one  standard  list  of  classifying  all  officers 
and  enlisted  men  in  the  Army,  and  it  will  do  away  with  the 
grouping  of  occupational  experience  by  industries  which 
inevitably  leads  to  overlapping  and  confusion. 

A  seemingly  wise  division  of  the  possible  68  index  numbers 
possible  on  an  8x11  card  would  be  as  follows: 
S  and  1-40  Occupational  experience. 

41-57  Military  experience  (allowing  one  more  than  now  used) 

58-62  Rank    (58-2nd  Lieut,  59-lst  Lieut.,  60-Capt,  61-Major, 

62-Lieut-Col.  and  above). 

63  Education. 

64  Membership  in  Societies. 
65-67  Foreign  Languages. 

68  Regular  Army  Officer. 

The  occupations  for  which  tabbing  would  be  made  possible 
are  as  follows,  utilizing  the  classification  set  forth  in  CCP-4. 

S.  Supplementary.  37.  Accountant. 

2.  Farmer.  40.  Baker  and  Cook. 

4.  Lawyer  and  Teacher.  42.  Merchant,  Jobber,  Whole- 

5.  Business  Man  and  Salesman.  saler. 

6.  Machinist.  43.  Medical  Man. 

10.  Electrician.  49.  Inspector. 

11.  Gunsmith.  50.  Construction  Superintendent. 

12.  Miner.  61.  Airplane  Mechanic. 
15.  Railroad  Operator.  62.  Artist,  camouflage. 

17.  Engineman.  64.  Architect. 

18.  Stock  Storekeeper.  67.  Chemist 


JOB-ANALYSIS  221 


24.  Auto  Mechanic.  71.  Banker  and  Broker. 

25.  Gasoline   Engine  Man,   not       72.  Instrument  Maker. 

auto.  82.  Detective. 

28.  Farrier,  Veterinarian.  84.  Purchasing  Agent. 

29.  Draftsman.  85.  Personnel  Director. 

30.  Surveyor.  88.  Sanitarian. 

31.  Telegrapher  and  Wireless       102.  Transportation  Man. 

Man.  104.  Writer. 

33.  Telephone  Man.  105.  Civil  Engineer. 

34.  Photographer.  106.  Commercial  Engineer. 

35.  Lumberman. 

36.  Mariner. 

This  list  includes  far  more  than  appears  at  first  because 
many  of  these  headings  are  very  broad.  For  example,  take 
the  case  of  "6  Machinist."  This  group  includes  such  sub- 
divisions as: 

Acid  Plant,  Machinist  6ap 

Assembler  6a 

Lathe  Hand  61 

Locomotive  61o 

Marine  engine  6m 

Mechanical  engineer  6me 

Railroad  shop  mechanic  6rs 

Tool  room  expert  6tr 
Etc. 

During  peace  times  officers'  cards  would  not  be  tabbed  at 
68 — Regular  Army  Officer,  since  when  all  cards  are  tabbed  at 
the  same  point  they  make  it  difficult  to  handle  them  in  the  file. 
But  on  declaration  of  war  all  cards  would  be  tabbed  and  there- 
after they  would  be  readily  distinguished  from  Reserve  Offi- 
cers' cards. 

Another  improvement  in  the  officers'  cards  would  be  to  eli- 
minate the  list  from  the  card  entirely  and  to  use  most  of  the 
space  for  the  officer  to  record  in  detail  what  he  has  done.  An 
expert  classifier  should  then  consider  each  card  and  classify 
the  officer  just. as  is  done  in  the  case  of  enlisted  men.  This 
change  would  be  in  line  with  the  development  that  has  taken 
place  in  the  case  of  the  Soldiers'  Qualification  Card  (See  illus- 


222  HISTORY  OF  PERSONNEL 

tration  of  the  November  1st,  1918,  edition,  page  86,  Vol.  II.). 
After  the  card  had  been  classified  it  would  be  tabbed  accord- 
ingly, all  occupations  not  provided  for  on  index  numbers 
1 — 40,  being  tabbed  at  "S,"  if  of  value  to  the  army  in  any 
way. 


CHAPTER  17 
COMMISSIONED  PERSONNEL  SPECIFICATIONS 

Further  than  the  efforts  described  in  the  proceeding  chapter 
to  analyze  the  needs  of  the  Army  in  so  far  as  they  concerned 
commissioned  personnel,  no  centralized  effort  was  made  to 
define  the  various  jobs,  which  the  officers  of  the  Army  in  all 
of  its  branches  had  to  perform.  To  be  sure,  individual  efforts 
of  the  various  arms  and  staff  corps  of  the  service  were  con- 
tinually exerted  in  the  procurement  of  officer  material  both 
from  civil  life  and  from  enlisted  men,  and  the  formulation  of 
policies  both  as  to  the  procurement  and  as  to  the  training  of 
these  men  for  duty  as  commissioned  officers,  necessitated  a 
certain  amount  of  job  analysis.  However,  the  chief  result 
was  the  rise  of  competition  between  the  various  staff  corps  in 
discovering  and  procuring  this  officer  material.  This  com- 
petition resulted  in  seriously  impeding  the  progress  of  the 
mobilization  of  the  Army  as  a  whole,  as  was  plainly  indicated 
in  the  situation  which  arose  in  the  late  summer  of  1918,  when 
plans  were  launched  for  doubling  the  number  of  officers  in  the 
Army.  Out  of  this  situation  arose  a  compelling  necessity  for 
centralizing  the  procurement  and  placement  of  commissioned 
personnel,  and  out  of  this  necessity  came  the  organization  of 
the  Personnel  Branch  of  the  General  Staff,  in  September, 
1918. 

At  the  beginning  of  the  war,  the  demand  for  officers  rested 
chiefly  upon  the  infantry  and  artillery  arms  of  the  service. 
At  first,  calls  for  officer  material  came  in  the  form  of  the 
Reserve  Officers'  Training  Camps,  in  May,  1917.  The  pri- 
mary intention  of  such  camps  was  to  produce  nothing  but 
Infantry,  Cavalry,  and  Field  Artillery  officers.  Incidentally 
officers  for  the  Coast  Artillery,  the  Aviation  section  of  the 

223 


224 


HISTORY  OF  PERSONNEL 


f  5 

~ 


1  111 

Elg;;     «|rjf  :&;*ifiigj is  isis 

J  *  v  '•  X  S   5 


iiilIililiiMlllSSlli  iiifflld 


o  •£ 

r-i      a 


X 


bO 

CS 
- 


OFFICERS'  SPECIFICATIONS 


225 


I 
I 

a 

a 


226 HISTORY  OF  PERSONNEL 

Signal  Corps,  the  Adjutant  General's  Department,  the  Ord- 
nance, and  the  Quartermaster  Corps,  were  trained  and  com- 
missioned. The  first  two  of  these  classes  were,  it  will  be 
observed,  as  much  line  officers  as  Infantry,  Cavalry  and  Field 
Artillery.  The  third  class  was  filled  by  candidates  from  the 
training  camps  of  two  general  categories,  namely,  those  having 
ability  to  speak  French  or  German,  and  desiring  to  function 
in  the  capacity  of  interpreters  and  intelligence  officers,  rather 
than  in  the  line;  and  those  selected  for  statistical  duties.  The 
fourth  and  fifth  classes  were  filled  by  those  officers  who,  it 
was  apparently  felt  by  commanding  officers  of  training  camps, 
had  not  the  qualifications,  or  had  not  at  one  training  camp 
received  the  development  necessary  to  fit  them  to  become  offi- 
cers of  the  line.  These  latter  classes  were  selected  super- 
ficially, the  implication  being  that  inasmuch  as  they  were  not 
good  enough  for  the  line  they  must  be  good  enough  for  the 
staff  corps.  The  only  general  criterion  of  judgment  in  the 
case  of  the  Quartermaster  Corps,  for  instance,  seemed  to  be 
financial  experience.  Subsequent  to  these  original  develop- 
ments, and  of  increasing  importance,  arose  the  necessity  for 
commissioning  men  in  the  various  branches  of  the  service,  not 
in  the  line. 

In  the  fall  of  1918,  however,  the  commissioning  by  the  staff 
corps  was  done  away  with,  and  all  commissions  except  those 
given  in  the  Central  Officers'  Training  Schools,  were  to  be 
issued  by  the  Commissioned  Personnel  Branch  of  the  Opera- 
tions Division  of  the  General  Staff.  Procurement  of  material 
for  such  officers  was  to  be  the  function  of  the  Procurement 
Section  of  that  branch.  At  this  time  the  Committee  on 
Classification  of  Personnel  in  the  Army  had  been  absorbed  by 
the  Miscellaneous  Section  of  the  Personnel  Branch,  and  it  was 
to  the  Committee  that  the  Procurement  Section  turned  and 
requisitioned  the  facilities  of  the  Personnel  Specifications  Unit 
in  order  to  secure  the  specifications,  outlines  of  duties  and 
qualifications,  for  officers.  The  plan  for  commissioned  per- 
sonnel specifications  was  limited  primarily  in  its  scope  to  an 


OFFICERS'  SPECIFICATIONS  227 

analysis  of  the  duties  to  be  performed  by  officers  of  the  staff 
corps,  and  only  incidentally  to  the  duties  to  be  performed  by 
line  officers. 

Accepting  the  soundness  of  the  principle  upon  which  en- 
listed personnel  specifications  were  constructed,  and  recog- 
nizing their  importance  as  a  requisite  to  proper  placement  in 
the  Army,  the  plan  of  job  analysis  for  officers  was  consequently 
developed,  in  large  part,  along  the  lines  previously  laid  down 
by  the  Personnel  Specifications  Unit.  Under  the  direction  of 
Mr.  Alvin  E.  Dodd,  and  with  the  assistance  of  Lieutenant 
Colonel  J.  J.  Coss,  Captain  James  Gregg  of  the  Personnel 
Specifications  Unit,  devised  an  information  sheet,  illustrated  in 
Fig.  10,  which  was  distributed  to  staff  corps  and  departments 
with  directions  to  fill  in  copies  of  the  information  sheet  for 
all  officers  concerned,  and  to  return  the  same  for  an  editorial 
revision  and  standardization  of  these  specifications  by  the 
Committee.  The  information  thus  collected  was  edited  and 
reconstructed  in  the  form  which  appears  in  Fig.  11,  page 
230,  and,  but  for  the  armistice,  would  have  been  turned  over  to 
the  Procurement  Section  of  the  Personnel  Branch  for  use  in 
recruiting  and  inducting  men  for  officers,  and  initially  assign- 
ing and  alloting  those  men  to  the  branch  of  the  service  where 
their  qualifications  would  appear,  according  to  personnel 
specifications,  to  be  of  the  greatest  utility. 

Thus  it  is  seen  that  commissioned  personnel  specifications 
for  each  corps  or  arm  of  the  service  constitute  an  analysis  of 
the  qualifications  and  brief,  but  comprehensive  outline  for  the 
range  of  duties  of  each  officer  position  in  such  corps  or  arm. 
These  specifications  being  prepared  with  a  view  of  determining 
whether  a  particular  person  is  qualified  for  a  commission,  and 
where  he  should,  as  a  commissioned  officer,  be  assigned,  only 
such  qualifications  were  considered  as  were  thought  to  have 
been  necessary  to  fulfill  such  a  function.  Commissioned  per- 
sonnel specifications  are  divided  into  three  parts:  (1)  Quali- 
fications, (2)  Special  army  training,  and  (3)  Duties,  according 
to  the  following  outline: 


228 HISTORY  OF  PERSONNEL 

I.     QUALIFICATIONS: 

1.  Age  Limits, 

a.  Best — those  within  which  a  man  is  likely 
to  be  most  able  to  perform  the  duties  of 
the  position. 

b.  Possible — those  within  which  a  man  can 
possibly  function,   although,  in   all  prob- 
ability, not  so  well  as  he  will  within  the 
best  limits. 

2.  Physical  Requirements. 

a.  Whether  he  is  to  be  assigned  to  combatant 
duty  or  to  a  position  which  will  not  draw 
upon  his  physique  and  which  can  be  satis- 

_  factorily  filled  by  a  limited  service  man. 

b.  Specific     physical     attributes,     expressed 
positively  or  negatively.     This  is  usually 
true  only  in  the  case  of  limited  service — 
where  such  physical  defects  as  would  not 
interfere    with    the    performance    of    his 
duties  are  specified. 

3.  Minimum  Schooling. 

The  least  schooling  which  will  fit  a  man  for 
the  position.  Note: — If  schooling  is  not  a 
decisive  qualification,  the  expression  "no  ar- 
bitrary requirements"  may  be  used. 

4.  Civilian  Occupations  (in  Order  of  Preference). 

Names  of  occupation,  (standardized  terms) 
with  indication  of  number  of  years  at  occu- 
pation. 

5.  Special  or  Technical  Qualifications. 

Both  required  and  desired — those  qualifica- 
tions, which  whether  occupational  or  other- 
wise are  highly  essential  or  highly  desirable 
that  one  should  have  in  order  to  perform  the 
duties  of  the  position. 

6.  Leadership. 

That  degree — essential  or  desired — divided 
as  follows: 


OFFICERS'  SPECIFICATIONS  229 

(1)  Maximum — normally  required  of  an  offi- 
cer actually  in  command  of  combatant 
troops. 

(2)  Average  maximum — normally  required  of 
an  officer  whose  duties  are  of  an  executive 
nature  requiring  initiative  and  control  of 
a  large  force. 

(3)  Average — normally  required  of  an  officer 
whose    duties    are    largely    of    an    admin- 
istrative nature. 

(4)  Nominal — normally  required  of  an  officer 
engaged  principally  in  research. 

II.     SPECIAL  ARMY  TRAINING: 

a.  Prior  to  being  commissioned — amount  of 
army  training  additional  to  the  qualifica- 
tions which   are  the  potentialities   a  man 
brings  with  him  for  the  performance  of  the 
duties  of  the  position,  essential  or  desirable 
in  order  to  assure  the  performance  of  the 
duties.    Note: — In  many  instances,  officers 
direct  from  civil  life  can  function  in  the 
army  without  this  special  army  training. 
This  is  particularly  true  of  administrative 
officers  as  contrasted  with  officers  actually 
in  command  of  troops. 

b.  Subsequent      to      being      commissioned — 
amount  of  army  training  as  an  addition  to 
civilian  and  previous  army  training,  essen- 
tial or  desirable  in  order  to  assure  the  per- 
formance of  the  duties.     Note: — This  ap- 
plies to  higher  positions  of  responsibility 
or  command,  such  as  a  chief  of  section,  as 
above  an  assistant  chief  of  section,  or  a 
battalion  commander  as  above  a  company 
commander. 

III.     DUTIES: 

Brief  but  comprehensive  statement  of  actual 
duties  of  position,  covering  range  of  the  usu- 
ally varied  activities  incidental  to  the  per- 
formance of  those  duties.  Note: — Because  of 
the  greater  scope  of  officers'  duties  such  defini- 
tions of  duties  are  usually  more  extended 
than  the  definitions  of  duties  of  enlisted  men. 


230  HISTORY  OF  PERSONNEL 

Engineering  Division 
PERSONNEL   SPECIFICATIONS 
Construction  Division 

ADVISORY    ENGINEER    ON    RAILWAYS;  MAJOR 

Qualifications 

Aye  limits:    Best,  35-54;  possible,  35-50. 
Physical  requirements:   Limited  service  only;  must  be  free 
from  disabilities  that  would  interfere  with  performance 
of  the  duties  of  this  position. 
Minimum  schooling:    Graduate  of  professional  or  technical 

school,  or  equivalent. 
Civilian  occupations  in  order  of  preference: 

1.     Railway  civil  engineer,  10  years. 
Special  or  technical  qualifications: 

Required:  Experience  (immediately  preceding  this  serv- 
ice) corresponding  to  that  of  a  division  engineer, 
assistant  chief  engineer  of  an  important  railroad  sys- 
tem, or  of  a  division  or  general  superintendent  who 
has  previously  served  as  a  division  engineer,  covering 
location,  construction,  design  of  tracks  and  yards,  de- 
sign of  auxiliary  structures,  and  operation  of  freight 
terminal. 
Leadership : 

Essential,  average. 
Desired,  average  maximum. 
Special  Army  Training 

None. 
Duties 

Prepares  standard  plans  and  specifications  for  railroad 
structures.  Determines  the  probable  traffic  conditions  for 
the  various  projects.  Designs  the  railroad  layout  for  in- 
dividual projects,  including  connections  with  existing  rail- 
roads and  arrangements  of  service  tracks  and  yards.  De- 
signs appurtenances,  such  as  coal  stations,  water  stations, 
engine  houses,  etc.  Advises  with  the  proper  persons  as  to 
operating  questions  involved,  including  selection  of  equip- 
ment. Assists  in  negotiations  with  existing  railroads.  Ad- 
vises with  the  proper  persons  on  the  maintenance  and  repair 
of  railroad  property. 

FIG.  11. 
Sample,  Commissioned  Personnel  Specifications 


OFFICERS'  SPECIFICATIONS  231 

Owing  to  the  cessation  of  hostilities  in  November,  1918,  and 
the  consequent  abandonment  of  plans  to  increase  commissioned 
personnel,  the  final  development  of  these  specifications  was 
not  emphasized.  Nevertheless,  the  preparation  and  collection 
of  the  material  commenced  prior  to  November  11,  1918,  con- 
tinued after  that  date,  but  only  one  set  of  the  personnel  speci- 
fications, that  of  the  Construction  Division  of  the  Army  (pub- 
lished in  March,  1919,  as  CCP  Form-490)  was  effected.  If 
the  situation  of  October,  1918,  had  continued,  these  commis- 
sioned personnel  specifications  would  have  served  the  same 
purpose  as  enlisted  personnel  specifications,  and  would  have 
been  available  for  use,  particularly  by  the  Operations  Divi- 
sion of  the  General  Staff,  and  incidentally  by,  (l)  those 
agencies  acting  in  co-operation  with  the  Procurement  Section 
of  that  division,  such  as  Students'  Army  Training  Corps,  and 
(2)  by  the  various  corps  and  arms  of  the  service  themselves. 


SECTION  V. 
THE  PERSONNEL  OFFICE 

As  originally  planned,  personnel  work  in  the 
Army  was  to  be  operated  from  a  division  or  camp 
personnel  office.  Each  such  camp  office  was  viewed 
as  a  separate  organization.  There  enlisted  men 
would  be  classified  and  properly  placed  in  some 
unit  in  the  camp.  Through  supervision  directed 
from  Washington  these  separate  offices  would  be 
standardized  as  to  procedure.  But  there  was  little 
thought  in  the  early  days  that  men  would  be  trans- 
ferred from  one  camp  to  another.  Consequently, 
no  organization  was  established  at  Washington  for 
such  a  purpose.  The  entire  operating  organization 
was  thoroughly  decentralized.  As  the  work  pro- 
gressed the  very  great  need  for  specialists  forced 
the  development  of  a  general  clearing  office  at 
Washington  and  gradually  brought  about  a  re- 
organization of  the  personnel  organization  so  that 
at  the  time  of  the  signing  of  the  Armistice  it  was 
actually  comparable  to  a  string  of  stores  whose  buy- 
ing and  selling  was  almost  entirely  directed  from 
the  central  office. 

Not  only  did  the  general  organization  of  person- 
nel offices  change  from  September,  1917,  to  Novem- 
ber, 1918,  but  the  functions  of  these  offices  also 
expanded.  At  the  beginning  the  personnel  office 


234  HISTORY  OF  PERSONNEL 

comprised  one  officer  and  a  few  enlisted  men  tem- 
porarily detailed  to  him  who  handled  the  qualifica- 
tion cards  and  were  charged  with  the  proper  place- 
ment of  men  within  the  units  of  the  camp.  At  the 
close  of  the  war  the  office  was  the  largest  in  the 
camp,  composed  of  seven  commissioned  officers  and 
two  hundred  men.  But  its  work  now  included 
not  merely  the  proper  placement  of  the  men,  but 
the  maintenance  of  all  records  regarding  them. 
Here  insurance  and  allotments  were  originated  and 
handled;  the  alphabetical  locator  cards  were  main- 
tained; all  papers  incident  to  the  enlistment  of 
soldiers  into  the  service  as  well  as  to  their  discharge 
were  prepared;  all  strength  reports  were  checked 
and  consolidated;  and  in  most  camps  all  transfer 
orders  were  prepared,  the  shipment  of  men  was 
supervised  and  the  papers  carefully  checked. 

What  led  to  this  evolution  from  a  simple  organ- 
ization with  simple  functions  to  a  very  complex 
one  ?  The  answers  to  this  question  will  be  presented 
under  the  following  heads : 

Early  beginnings  of  Personnel  Work  in  the 
Camps  (Chapter  18.) 

Rise  of  Paper  Work  in  the  Personnel  Office 
(Chapter  19.) 

Receiving  the  Draft  ( Chapter  20. ) 

Personnel  Work  in  Staff  Corps  Camps  ( Chap- 
ter 21.) 

Plans  for  Separation  of  Personnel  Work  and 
Adjutant's  Work  (Chapter  22.) 


CHAPTER  18 

EARLY  BEGINNINGS  OF  PERSONNEL  WORK 
IN  THE  CAMPS 

EARLY  PLANS  FOR  PERSONNEL  OFFICES 

In  Chapter  6  is  given  in  detail  the  steps  that  led  up  to  the 
establishment  of  personnel  offices,  first,  in  national  army  can- 
tonments, and  later,  in  all  camps  in  this  country.  In  order 
that  the  development  may  be  clear,  a  few  facts  will  be  re- 
peated but  with  emphasis  upon  the  bearing  they  have  on 
work  in  the  camps. 

The  basic  ideas  as  to  establishment  of  personnel  work  in 
the  camps  were  three.  First,  the  appointment  of  a  captain 
to  act  as  personnel  officer  in  the  camp.  Second,  the  assign- 
ment of  a  civilian  experienced  in  employment  work  who  should 
be  stationed  at  the  camp  and  aid  the  captain  in  organizing 
and  operating  his  work.  These  ideas  were  clearly  brought 
out  in  the  telegrams  of  August  25  and  29  and  the  letter  of 
September  5  (See  Chapter  6).  And  third,  active  supervision 
of  the  work  in  all  the  camps  through  letters  from  the  central 
office  at  Washington  and  visits  of  civilian  supervisors.  It  was 
recognized  that  without  this  supervision  it  would  be  impos- 
sible to  standardize  the  work  in  the  various  camps.  And 
moreover,  it  was  realized  that  a  very  rapid  exchange  of  ideas 
and  experiences  between  camps  was  essential  to  good  work, 
as  no  one  had  had  experience  in  personnel  work  in  an  army. 

Following  a  conference  at  Washington  September  8-10,  the 
personnel  officers  arid  civilian  experts  went  to  their  respective 
camps  in  the  eastern  part  of  the  country  to  inaugurate  the 
work.  Personnel  officers  and  civilians  assigned  to  western 
camps  met  in  conference  at  St.  Louis,  September  11  and  12 
and  then  proceeded  to  their  camps. 

235 


236  HISTORY  OF  PERSONNEL 

INTRODUCTION  OF  PERSONNEL  WORK   INTO 
NATIONAL  ARMY  CAMPS 

Getting  Started.  The  letter  of  September  5  has  been  given 
in  full  in  Chapter  6.  The  third  and  fourth  paragraphs  are 
repeated  here  for  they  proved  to  be  a  veritable  "magna 
charta." 

"3.  The  furniture  for  the  Personnel  Office  has  already  been 
ordered  by  the  Quartermaster  General's  Office  and  shipped  in 
care  of  the  Personnel  Officer. 

4.  The  following  items  should  be  provided: 

(1)  Approximately  300  square  feet  of  floor  space  for 

the  Personnel  Office  at  Division  Headquarters. 

(2)  Telephone. 

(3)  Quarters  in  the  camp. 

(4)  Suitable  place  in  camp  for  meals  for  which  he  will 

pay- 

(5)  Clerical  assistance  as  required,  to  be  performed 

by  men  detailed  from  the  command." 

In  most  camps  there  was  very  little  office  space  for  anyone. 
This  order  secured  space  and  made  it  possible  to  obtain  suffi- 
cient furniture  and  office  supplies.  And  in  most  camps  with- 
out this  letter  it  would  probably  have  been  impossible  to  secure 
a  phone,  owing  to  the  great  shortage;  and  without  a  phone 
little  could  have  been  accomplished. 

The  first  duty  was  to  present  the  matter  to  commanding 
officers  and  secure  their  intelligent  interest  and  cooperation. 
This  was  not  so  easily  done  since  many  of  them  viewed  the 
new  work  as  another  civilian  enterprise  that  if  given  rope 
enough  would  sooner  or  later  hang  itself.  The  next  step  was 
to  present  the  work  to  company  commanders  and  have  orders 
issued  requiring  that  the  qualification  cards  be  filled  out  for 
all  recruits  and  forwarded  to  the  personnel  office.  In  those 
early  days  nearly  every  one  was  new  to  his  duties  and  it  was 
no  easy  task  to  secure  compliance  with  orders  of  any  sort, 
to  say  nothing  of  unusual  orders  requiring  much  time  and 
effort.  The  cards,  however,  were  filled  out  in  the  majority 


Q 


f  uo 


uoi£i\jriunu\J  I 


aa./cy 


c/5 


ER 


M 


t    bo 
fi 


V) 

V 

e>  j 

c 

(N 

4 
N 

<Jj 

J            "t 

| 

lo 

C 

0 

iO 

0 

Q 
^ 

c 

Ki 
r~. 

J 

r. 

I 
• 

OS 

-C 
lr> 

t- 
CO 

CM 

* 

K) 
C 

M 

« 

cv 

? 

CO 

•o 

5 

<!• 

r. 

^ 

r; 

tc 

r 

Q 

4 

f~ 

w. 

: 

^ 

c 

M 

^ 

ffl 

c» 

:       10 

:-> 

": 

K 

h 

C 

<* 

d 

IT, 

In 

(0 

rO 

o 
"l 

n 

0 
«l 

0 

c 

0 

- 

~. 

f] 

5 

p 

«.-,      * 

•0. 

t, 

/      01 

3    S 

„« 

J  , 

o^; 

no 

/ 

P 

T 

Jc 

L 

°J 

- 

c 

CN 

'!. 

4 

-i 

") 
IS 

0( 

;.-, 

• 

c 

<s 

0 

^ 

c. 

q 

N 

l« 

0 

4 

A 

4 

>^ 

rN! 

iO 

?. 

| 

S, 

-S     .£ 

H 

^_ 

^ 

d] 

1^ 

1 

•j- 

M 

ot 

0 

I-, 

N 

< 

? 

c 

r< 

N 

fX 

^3 

•f^ 

- 

<i- 

ex 

4 

* 

c< 

* 

>f> 

!•> 

<0 

OC 

* 

fe 

* 

ei 

f 

3 

rj 
jj 

'1 
cc 

* 

4 

OC 

A 

'o 

a 

N 

s 

s 

<s 

«1 

Q 

fl 
C 

r 

C 

r( 

N 

'I 

„ 

, 

N 

c 

0 

cs 

* 

I 
ti 

C 

i 

N 

r 
t 

e 

M 

^ 

ffl 

ifl 

£ 

N 

«0 

? 

j 

r 

N 

<O 
jj 

0 

1 

< 

f< 

<s 

c 

•4 

0 

r" 

u 

J 

<0 

K* 
<j 

n 

K1 
rt 

"c 

- 

n 
(^ 

'1 

i 

N 

t 

s 

4 

^ 

M 
CO 
^ 

^ 

vS 

1 

N 

L~ 

Q 

S 

M 

5 

(0 

S 

0 

c. 

*1 

I 

C 

0. 

\ 

3) 

H 

IT 

0 

r<- 

V, 

i 

§ 
j 

§ 

1 

p 

1 

11 

0.-H 

cj    >1- 
•-1     ..      •" 

M  M 
o    R 

I 

1% 

\l 

fl 

<$ 
-p 

c  , 

E 

1 

^ 

: 
** 

U 

0 

P- 

h    Li 

4)     V 
P<   C 
<U     t 

£  & 
xi 

Li 
4> 
J 

u, 

s  ^ 

f, 

0 

t. 

o 

4^ 
Ul 

•o 

0 

p< 

0 

*-• 

Vi 

•  r-< 

t* 

U5 

'fio 

ical  Student  | 

4J 

« 
C 

+* 
'-, 
Z 

I 
i 

<* 

M 

• 

4J 

s 

—1 

^ 

0 

^ 

*-> 

0 

^ 

V 

ras  Worker 

h 

• 

OT 
V> 
<D 

•raaVcer 

V, 

o 

hmaker  I 

P. 

5 

in 
i_ 

o 

u 
^i 

1 

g 

& 

H 
?U 

)- 

e> 

•  H 

t-, 

c 

+J 

C 

|  treuuec 

i 
& 

S 
2 

0 

a 
1 

g 
o 

i 

• 

o 

1 

P. 

4) 
-(-> 

t 

M 
o 
<-> 

*> 
3 

0 

D 

>less  Constructor 

^ 
i 
.t 

i 
i 

c 

k° 

0 

E 

fO 
tO 

0    > 

£i; 

**  10   < 

«  to  t 

2  (/• 

o  u> 
Q  « 

o 
o 

t-  c 
IO  I 

3    tt> 
D    rH 

a  (o 

0    GO 
O    « 

>r4 

ir, 

m 
n 

5  3 

CO    /) 

CO    J» 
N    tO 

s^§ 

-i  pa  o 
J^  O  O 

r)    *f   if 

K 

«r 

o 
k 

ti 

cv 

*r 

g 

SO 

^1- 

V 

CO 
TC 

2 

0 

to 
«t 

•o 

i 

« 
«r 

J- 
0 
2 

O 
•* 

1 

to 
•* 

| 

•* 
•«!• 

1 
« 

* 

fj 

n 

irj 
^C 

c 
rt 
c_> 

vO 

•* 

_rt 
^* 

0 

-C 
(/ 

c^ 

•* 

n 
E- 

co 

«^ 

4J 

d 

<r. 
•* 

rj 
i) 
^ 

0 
10 

rt 
o 

-(-> 
d 
w 

L- 

c 

M 

^ 

•0 

^ 

o 

in 
0 
Pu 

•H 
A 

i 

1 

I 

V 

1 

> 

* 

PERSONNEL  WORK  IN  CAMPS  237 

of  cases.  They  were  then  classified,  tabbed  and  filed  by  com- 
panies, the  personnel  officer  and  civilian  expert  doing  most  of 
the  work.  Later,  details  of  enlisted  men  were  secured  and 
they  were  gradually  trained  in  what  to  do. 

One  of  the  greatest  difficulties  in  checking  up  the  cards  to 
ascertain  if  all  were  present  was  the  lack  of  complete  lists. 
It  was  practically  impossible  to  obtain  them  from  company 
commanders  because  of  interference  on  the  part  of  higher 
ranking  officers  and  the  information  existed  nowhere  else. 
The  Statistical  Officers  ought  to  have  had  this  information, 
but  their  instructions  were  to  wait  until  forms  were  supplied 
them  and  they  did  not  come  for  weeks.  Gradually  in  all 
sorts  of  ways  the  qualification  cards  were  checked  and  missing 
ones  obtained.  But  not  for  months  did  one  know  for  certain 
that  his  list  was  complete. 

The  First  Requisitions.  Almost  as  soon  as  the  cards  were 
received  requisitions  commenced  coming  to  the  personnel  office. 
The  most  common  requests  were  for  cooks  and  stenographers, 
with  typists  a  good  third.  Such  requisitions  were  extremely 
difficult  to  fill  as  there  were  but  few  men  of  such  qualifications 
in  the  first  5%  of  the  draft.  And  it  was  often  difficult  to  get 
stenographers  to  serve  as  many  were  promised  all  sorts  of 
things  by  their  company  commanders  to  stay  with  them; 
besides  some  wanted  to  drill  and  have  the  chance  to  go  over 
the  top.  But  gradually  good  stenographers  were  supplied 
the  General,  the  Chief  of  Staff,  and  other  officers  at  Head- 
quarters. Such  personal  services  did  much  to  win  the  support 
of  these  officers  to  the  work. 

In  one  camp  the  camp  quartermaster  was  ordered  to  dis- 
pense with  his  civilian  help  and  substitute  for  it  enlisted  men. 
Soldiers  were  carefully  selected  on  the  basis  of  their  quali- 
fication cards  for  these  positions  and  reinterviewed  before 
being  transferred.  The  results  were  appreciated  and  there- 
after no  trouble  was  experienced  in  getting  supplies  of  all 
sorts  for  the  personnel  office.  Moreover,  the  quartermaster 
talked  considerably  about  the  service  rendered  and  helped 


238 HISTORY  OF  PERSONNEL 

very  materially  in  establishing  the  work  on  a  solid  foundation. 
The  interest  of  the  Commanding  General  and  his  faith  in 
the  effectiveness  of  the  classification  system  hinged,  to  a  large 
extent,  on  the  promptness  and  accuracy  with  which  these  ini- 
tial demands  for  specialists  could  be  met.  The  Personnel  Of- 
ficer of  the  —  Division  wrote  the  following  letter  to  the  super- 
visor of  the  classification  work  in  the  camps  within  a  few 
weeks  after  the  work  was  started  in  that  division: 

"I  have  the  pleasure  to  report  that  9:30  P.  M.  Saturday 
night,  Major  Miller  of  the  Ordnance  wanted  125  auto  mechan- 
ics of  three  years  or  more  training — and  in  an  hour  and  a 
half  we  had  the  list  complete. 

"In  45  minutes  we  had  three  men  for  printing  office.  While 
the  printers  were  getting  out  the  type,  I  had  an  expert  auto 
mechanic  setting  up  the  press  and  an  electrician  connecting 
the  motor — all  done  and  running  in  three  hours. 

"The  base  hospital  had  thirteen  firemen.  Investigation 
proved  the  firemen  were  those  who  fired  boilers,  and  steamers, 
but  were  not  fire  fighters. 

"We  got  a  fire  chief — the  Assistant  Chief  of  the  Canton, 
Ohio,  Fire  Department,  twenty  minutes  after  the  call,  and 
Major  Cole  came  over  in  his  car  and  got  the  man.  Major 
Cole  says  we  have  a  box  of  cigars  coming  to  us. 

"Major  Wilson,  Signal  Corps,  wanted  six  pigeon  fanciers. 
I  got  him  ten  in  ten  minutes.  The  financial  department  of 
Quartermaster's  Department  wanted  a  man  to  assist  in  pay 
rolls,  gave  them  Pat  Tompkins  who  was  pay  roll  clerk  in 
Haydenstone  Bank  at  Columbus,  Ohio. 

"The  Quartermaster  wanted  thirty-five  men  in  warehouse. 
Gave  him  just  what  he  wanted  in  thirty  minutes.  Headquar- 
ters wanted  three  stenographers.  In  three  hours,  I  gave  them 
fifteen  to  choose  from. 

"Today,  General  Smith  asked  for  three  men  to  go  to  France 
as  "Billeting  Officers"  I  gave  him  three.  He  said,  let  me 
see  them.  He  took  them  all  and  congratulated  me.  So  it  goes. 

"I  deserve  no  credit;  I  take  no  credit,  only  I  am  very 
proud  of  the  system,  and  the  help  of  the  supervisor  whose 
assistance  is  of  untold  value." 

The  First  Job-Analyses.  Job  analysis  early  came  to  the 
front.  A  requisition  for  packers  from  the  Engineer  Sub-depot 


PERSONNEL  WORK  IN  CAMPS  239 

resulted  in  several  men  being  transferred  only  to  have  it 
announced  that  they  were  not  what  was  wanted.  Finally  a 
visit  to  the  depot  resulted  in  complete  understanding.  Fairly 
intelligent  men  of  some  carpenter  experience  were  wanted. 
They  were  found  and  the  incident  was  closed.  A  little  later 
the  Colonel  of  Engineers  dropped  in  one  day  and  said,  "You 
gave  us  what  we  asked  for,  but  we  didn't  ask  for  the  right 
kind  of  men.  We  don't  want  specialists,  we  want  all  around 
men  with  intelligence."  After  that  his  requisitions  were  better 
expressed  and  better  filled.  Out  of  800  sent  him  he  testified 
that  all  but  24  were  what  he  wanted,  an  efficiency  of  97%. 
Again,  it  was  commonly  supposed  that  machinists  should  be 
assigned  to  Machine  Gun  Battalions.  After  considerable  trial 
a  Major  reported  that  they  should  be  sent  to  the  Ordnance. 
What  he  wanted  was  not  lathe  hands  but  handy-men — men 
who  liked  to  "tinker."  Such  men  naturally  took  to  any  mech- 
anism and  shortly  knew  all  about  it.  Thus  much  was  learned 
as  the  days  went  by  about  what  had  to  be  done.  But  unless 
the  Tables  of  Occupational  Needs  and  Personnel  Specifica- 
tions, which  later  appeared,  had  been  developed  by  men  with 
no  other  task  to  do,  they  would  never  have  been  worked  rout 
in  the  camps  because  there  was  too  much  else  to  be  done  there. 
Balancing  the  Divisions.  The  one  main  idea  uppermost  in 
the  minds  of  the  personnel  officer  and  the  civilian  expert  was 
to  "balance"  the  division  forming  at  the  camp.  At  the  very 
beginning  there  was  nothing  definite  to  go  by.  The  result 
was  that  certain  energetic  officers  in  the  camp  made  their 
wants  known  and  efforts  were  made  to  fill  them.  Other  or- 
ganizations were  more  or  less  ignored  for  lack  of  information. 
When  Chart  B  (See  Figure  12,  insert)  was  received  giving 
the  number  of  each  kind  of  specialist  per  organization  there 
was  a  definite  basis  for  action.  This  chart,  by  the  way,  was 
received  with  as  much  enthusiasm  by  line  officers  as  by  the 
personnel  officer.  Gradually  a  fairly  definite  policy  developed 
in  each  camp  as  to  the  transferring  of  men  from  one  organi- 
zation to  another  so  as  to  meet  the  specifications  of  the  Chart. 


240  HISTORY  OF  PERSONNEL 

The  greatest  obstacle  to  efficient  personnel  work  was  the 
practice  of  assigning  men  to  units  according  to  the  geographi- 
cal location  of  their  local  boards.      Thus  all  the  men  from 
Gary,  Indiana,  went  to  the  309th  Engineers  at  Camp  Taylor. 
As  a  result  this  organization  had  three  companies  with  scarcely 
a  handful  who  could  speak  English.     Before  this   engineer 
organization  could  function  efficiently  the  men  would  have  to 
be  taught  English  and  also  in  most  cases  construction  work 
as  very  few  had  had  any  but  laborer's  work  in  steel  mills. 
Once  men  were  assigned  to  a  unit  they  commenced  "to  take 
root"  unless  they  were  inferior  men,  and  the  longer  they  re- 
mained the  more  difficult  was  it  for  the  personnel  officer  to 
have  them  transferred  elsewhere.     An  illustration  makes  this 
clearer.     The  Judge-Advocate   in  one  division   requisitioned 
for   a  sergeant  major  who   spoke   French   and  German,  had 
had  some  legal  training  and  was  bright  and  intelligent  with 
a  good  soldierly  bearing.     Such  a  man  was  obtained.     When 
he  reported  to  the  Judge-Advocate,  however,  he  stated  he  did 
not  want  the  position,  that  recently  he  had  become  very  much 
interested   in  bacteriology   and   wished  to  work   at  that.      A 
month  later  he  was  ordered  transferred  to  the  base  hospital  as 
a  bacteriologist.     The  company  commander  immediately  re- 
ported to  the  office  in  protest.    The  man  was  his  first  sergeant 
and  best  drill  master.     Moreover  the  man  had  changed  his 
mind  and  wanted  to  stay  in  infantry.     Later  the  Colonel  and 
Adjutant  of  the  Regiment  protested  to  the  Chief  of  Staff. 
Finally,  after  the  Judge  Advocate  had  testified  as  to  the  man's 
refusal  to  accept  a  sergeant  majorship  because  of  his  interest 
in  bacteriology,  the  Colonel  withdrew  his  objection,  particu- 
larly since  the  base  hospital  needed  bacteriologists  and  this 
was  the  only  one  in  camp.     Had  the  soldier  been  kept  in  a 
true  depot  brigade  during  this  period,  there  would  have  been 
no  trouble  in  placing  him  when  the  requisition  was  received. 

Gradually  this  obstacle  was  lessened  by  one  change  after 
another.  But  it  never  was  really  eliminated  until  the  depot 
brigade  was  established  as  a  separate  and  distinct  organiza- 


PERSONNEL  WORK  IN  CAMPS  241 

tion  from  the  division  and  until  an  efficient  camp  personnel 
office  was  placed  in  charge  of  the  personnel  in  the  depot 
brigade. 

As  an  example  of  how  satisfactorily  men  were  selected  even 
in  the  early  days  the  statement  of  one  regimental  commander 
is  recorded  here.  The  letter  was  written  shortly  after  the  sys- 
tem was  installed  in  his  camp. 

"During  the  past  four  days  this  regiment  has  received  about 
2,000  men  from  the  Personnel  Office.  The  transfers  have 
been  effected  rapidly  and  accurately,  due  to  the  excellent  sys- 
tem and  efficient  personnel  of  the  Personnel  Office. 

"My  regimental  personnel  officer  has  reported  to  me  that 
he  has  received  the  utmost  consideration  and  courtesy  from 
the  Personnel  Officer.  The  papers  of  the  men  have  been 
handled  accurately  and  well  and  whatever  changes  were  neces- 
sitated by  the  rapidity  of  the  transfer,  have  since  been  made 
with  dispatch. 

"Great  praise  in  my  opinion  is  due  to  the  Division  Per- 
sonnel Officer  and  his  assistant,  who  have  supervised  the  actual 
selection  of  the  men  for  the  Division.  An  Infantry  Regiment 
requires  certain  specialists  that  are  hard  to  find  and  in  every 
case  the  Personnel  Officer  or  his  representative  have  been 
unfailing  in  their  search.  Moreover,  the  rank  and  file  -of 
non-specialists  have  been  good  with  but  few  exceptions.  I  do 
not  know  how  the  other  Regimental  Commanders  of  the  Divi- 
sion feel,  but  I  would  not  think  it  right  to  omit  calling  to  the 
attention  of  the  Division  Commander,  the  existence  of  a  Per- 
sonnel Department  which  is  able  within  three  days  to  recruit 
one  Infantry  Regiment  to  war  strength,  not  only  with  all 
the  required  specialists  but  also  with  over  90%  of  the  neces- 
sary papers  intact  and  accurately  made  out." 

War  Department  Requisitions  for  Specialists  and  their 
Effect  on  Personnel  Work.  On  October  5th,  1917,  the  first 
requisition  was  issued  from  Washington  for  occupational  spe- 
cialists to  be  transferred  from  one  camp  to  another.  This 
called  for  printers  and  book  binders  for  overseas  service. 
During  that  month,  5,334  men  were  so  transferred  and  during 
November  a  total  of  16,239.  The  numbers  so  requisitioned 
increased  in  number  so  that  a  total  of  approximately  960,000 


242  HISTORY  OF  PERSONNEL 

were  transferred  in  13  months.  During  the  first  few  months 
in  addition  thousands  of  unclassified  men  were  transferred  out 
of  camps  to  other  units.  Until  July  these  transfers  took  men 
not  only  out  of  national  army  camps  but  also  out  of  definite 
units  in  those  camps.  Naturally  all  officers  concerned  were 
very  much  exasperated  and  in  a  short  time  much  of  their 
antagonism  was  directed  at  the  local  personnel  office,  as  from 
this  office  came  the  obnoxious  orders.  This  feeling  became 
so  strong  in  some  camps  as  to  very  seriously  affect  the  per- 
sonnel work.  And  even  today  officers  are  met  with  who 
raise  the  whole  situation  as  an  argument  against  personnel 
work. 

There  is  no  doubt  that  calls  for  specialists  would  have  been 
made  whether  a  personnel  organization  existed  or  not.  The 
criticism  leveled  at  it  was  unforunate  and  unfair,  but  most 
natural.  On  the  other  hand,  there  is  no  doubt  that  the  exist- 
ence of  the  personnel  organization  made  it  possible  to  secure 
these  specialists  in  much  less  time  and  with  a  far  higher 
degree  of  accuracy  than  would  have  otherwise  been  possible. 

EXTENSION  OF  PERSONNEL  WORK  TO  NATIONAL 
GUARD  AND  REGULAR  ARMY  CAMPS 

On  October  17th  1917,  orders  were  issued  to  National 
Guard  Camp  Commanders  in  the  eastern  part  of  the  United 
States  directing  them  to  appoint  personnel  officers  and  have 
them  report  to  Washington  for  instructions.  There  a  confer- 
ence of  several  days  was  held  and  following  it  the  personnel 
officers  accompanied  by  civilian  experts  reported  to  their 
respective  camps  for  duty.  A  similar  conference  for  per- 
sonnel officers  from  western  camps  was  held  at  San  Antonio, 
Texas,  Nevember  1st  and  2nd. 

As  the  national  guard  divisions  were  fairly  well  filled,  the 
problem  was  somewhat  different  from  that  of  the  national 
army  camps.  The  two  principal  things  to  be  done  were  to 
classify  the  men  and  to  balance  the  division.  Profiting  from 
experience  with  company  commanders  preparing  qualification 


PERSONNEL  WORK  IN  CAMPS  243 

cards,  interviewing  boards  were  constituted  composed  en- 
tirely of  officers.  At  Camp  Kearney,  for  example,  approxi- 
mately one  hundred  lieutenants  and  captains  were  utilized. 
They  interviewed  all  the  enlisted  men  and  prepared  the  cards. 
When  this  was  done  statements  were  secured  from  unit  com- 
manders as  to  what  specialists  they  needed  to  complete  their 
organizations.  In  terms  of  such  statements  and  of  Chart  B, 
transfers  were  then  ordered.  The  extent  to  which  this  was 
actually  accomplished  differed  markedly  in  the  various  camps. 
In  some,  the  division  was  pretty  thoroughly  balanced,  in 
others  very  little  was  accomplished.  A  colonel  from  one  camp 
where  most  units  were  in  this  way  pretty  well  balanced,  volun- 
tarily stated  in  November,  1918,  while  in  France  that  the 
balancing  a  year  before,  had  increased  the  efficiency  of  his 
regiment  100%.  Specialists  not  needed  in  one  organization  to 
which  they  belonged  but  badly  needed  elsewhere  were  thus 
efficiently  utilized.  Not  only  was  this  accomplished,  but  in 
some  camps  it  had  the  additional  value  in  breaking  up  politi- 
cal groups  whose  influence  had  been  not  of  the  best.  The 
latter  benefit  cannot  be  really  credited  to  personnel  work  in- 
asmuch as  it  was  not  definitely  planned  for. 

Personnel  work  was  in  a  similar  manner  introduced  into 
Regular  Army  Camps  on  December  15th,  1917.  The  general 
procedure  was  as  described  above. 

From  this  time  on  personnel  work  was  gradually  extended 
being  introduced  into  one  camp  after  another  of  the  Staff 
Corps.  (See  Chapter  21). 

ORGANIZATION  OF  THE  PERSONNEL  OFFICE 

The  organization  of  a  personnel  office  in  the  early  days  con- 
sisted of  a  captain,  the  civilian  expert,  and  a  few  temporarily 
detailed  enlisted  men.  They  issued  qualification  cards  to  the 
company  commanders,  or  in  national  guard  camps  to  the  Inter- 
viewing Board;  received  the  cards  back;  classified,  tabbed 
and  filed  them ;  made  up  reports ;  and  filled  requisitions  for 
occupational  specialists. 


CHAPTER  19 

RISE  OF  PAPER  WORK  IN  THE  PERSONNEL 

OFFICE 

As  originally  planned  the  personnel  officer  was  to  handle 
the  qualification  cards  of  enlisted  men  and  to  use  them  in 
placing  specialists  to  the  best  advantage  of  the  army.  It  was 
felt  that  one  officer  with  a  few  enlisted  men  could  carry  on 
this  work  in  an  efficient  manner.  When  the  armistice  was 
signed  the  camp  personnel  office  comprised  7  officers  and  200 
men  and  carried  on  an  enormous  amount  of  paper  work.  It  is 
estimated  that  an  average  office  in  connection  with  merely 
receiving  drafted  men  handled  about  432,000  forms  per  month 
entailing  520,000  signatures  by  commissioned  officers.  All 
this  was  in  addition  to  the  regular  routine  of  the  office. 

EARLY  CAUSES  FOR  RISE  OF  PAPER  WORK  IN  THE 
PERSONNEL  OFFICE 

Personnel  Officer  an  Assistant  to  the  Adjutant.  The  per- 
sonnel officer  was  appointed  by  War  Department  orders  to 
handle  personnel  work.  But  he  was  made  an  assistant  to  the 
Adjutant.  Since  the  Adjutant  was  very  short-handed  in  the 
early  days  and  was  swamped  with  work,  it  was  most  natural 
that  he  should  call  upon  the  personnel  officer,  to  assist  him  in 
his  regular  duties.  Within  a  short  time  every  personnel  officer, 
in  consequence,  was  performing  certain  duties  in  addition  to 
that  of  personnel  work.  In  one  camp  it  would  be  the  handling 
of  morning  reports,  in  another  handling  correspondence,  in 
another  some  other  phase  of  the  Adjutant's  work. 

Rendering  Service.  One  of  the  principal  features  of  per- 
sonnel work  was  to  render  service.  From  General  McCain 
down  throughout  the  organization  this  was  emphasized.  When 

244 


RISE  OF  PAPER  WORK 245 

the  personnel  officer  was  given  another  duty  to  perform  he 
viewed  it  as  an  opportunity  to  render  service  and  endeavored 
to  do  it  to  the  best  of  his  ability.  Within  a  short  time  it 
became  notorious  that  enlisted  men  in  the  personnel  office  had 
longer  hours  and  more  work  to  do  than  anywhere  else.  Sur- 
prising to  say  little  complaint  was  made  on  this  score, 
although  plenty  arose  from  other  causes. 

Visits  of  civilian  supervisors  to  the  camps  were  another 
indirect  factor  in  the  rise  of  paper  work  in  the  personnel 
office.  First  of  all  they  encouraged  the  personnel  officer  to 
go  ahead  and  conquer  the  new  job.  They  also  reported  what 
was  being  done  in  other  camps,  thereby  suggesting  many  times 
additional  duties  which  were  of  value  elsewhere  in  building  up 
good  will  for  the  work. 

Serious  Study  of  Paper-work  Situation.  Reports  from  the 
supervisors  warned  the  Committee  at  Washington,  however, 
that  this  additional  work  was  seriously  interfering  with  effi- 
cient classification  and  placement  of  enlisted  men.  On  the 
whole,  their  recommendations  were  to  accept  the  additional 
work  but  to  secure  an  adequate  permanent  force  of  enlisted 
men  in  order  that  it  might  be  properly  accomplished.  This 
recommendation  will  be  discussed  later  on.  Realizing  the 
seriousness  of  the  paper-work  situation,  the  Committee  secured 
the  services  of  Mr.  W.  R.  DeField  about  November  16th,  who 
made  a  study  of  the  subject  in  several  camps  and  reported 
to  the  Committee  late  in  December.  The  report  was  consid- 
ered by  Colonel  (later  Major-General)  P.  C.  Harris  who  was 
engaged  at  that  time  in  a  serious  endeavor  to  relieve  com- 
pany commanders  of  some  of  their  paper  work.  On  April 
29th,  General  Order  No.  42  was  issued  appointing  personnel 
officers  for  each  regiment,  separate  or  detached  battalion,  or 
similar  unit,  etc.,  who  would  handle  the  pay  rolls  of  the 
several  companies.  This  order  also  discontinued  muster  rolls. 

By  the  first  of  February,  however,  the  general  policy  had 
developed  in  the  Adjutant  General's  Office,  under  Col.  Har- 
ris' leadership,  to  relieve  company  commanders  of  paper  work, 


246  HISTORY  OF  PERSONNEL 

as  far  possible.  This  policy  had  a  profound  effect  upon  per- 
sonnel work,  for  it  very  definitely  set  the  tide  toward  increas- 
ing the  functions  of  the  personnel  officer  through  his  taking 
over  one  paper  work  assignment  after  another. 

CONSOLIDATION  OF  STATISTICAL,  INSURANCE 
AND  PERSONNEL  WORK 

The  Statistical  Section.  A  statistical  organization  was 
ordered  for  each  division  which  should  maintain  a  file  of  statis- 
tical cards  upon  which  a  record  would  be  kept  of  each  enlisted 
man  and  officer  as  to  organizations,  transfers,  discharges, 
deaths,  desertions,  etc.  The  cards  were  to  be  filed  alphabetic- 
ally for  the  division,  so  that  if  the  name  was  supplied  of  any 
soldier  he  could  immediately  be  located.  It  was  further  con- 
templated that  the  statistical  organization  would  handle  casual- 
ties overseas.  Three  lieutenants  were  assigned  to  this  duty 
together  with  certain  enlisted  men  at  headquarters  and  in 
each  regiment  or  similar  separate  unit. 

The  Insurance  Section.  On  November  20th,  1917,  telegram 
of  A.  G.  O.  authorized  the  appointment  of  a  captain  and 
lieutenant  in  the  Adjutant  General's  Department  as  insurance 
officers.  An  enlisted  force  of  eight  men  was  also  authorized 
in  this  telegram.  In  General  Orders  No.  149,  November  28, 
1917,  this  force  was  specified  as  consisting  of  one  regimental 
sergeant  major,  two  battalion  sergeants  majors,  three 
sergeants  and  two  privates,  first  class. 

Plans  for  Consolidating  Statistical,  Insurance  and  Personnel 
Work.  As  early  as  December  1st,  a  memorandum  was  ad- 
dressed to  the  Adjutant  General  recommending  that  the  Statis- 
tical, Insurance  and  Classification  work  be  combined  and  that 
a  second  assistant  to  the  Division  Adjutant,  with  the  grade  of 
Major,  be  placed  in  charge.  Under  him  would  be  two  cap- 
tains and  two  lieutenants.  Intimation  of  this  coming  consoli- 
dation was  given  to  the  Camp  Commander  in  a  telegram  of 
December  7th: 

"The  matter  of  consolidation  of  personnel  classification, 

I 


RISE  OF  PAPER  WORK  247 

statistical  and  insurance  work  and  provision  of  officers  and 
men  to  take  care  of  all  three  branches  of  work  is  under  con- 
sideration and  early  action  will  be  taken.  The  personnel 
and  statistical  work  must  not  be  prejudiced  or  the  services 
of  officers  and  men  who  have  rendered  good  service  be  lost 
through  temporary  lack  of  permanent  status." 

On  January  2,  1918,  telegram  of  the  A.  G.  O.  authorized 
eight  additional  enlisted  men  in  Division  Adjutant's  office, 
which  were  to  be  provided  for  in  Tables  of  Organization.  The 
grades  were,  one  regimental  sergeant  major,  two  battalion 
sergeants  major,  three  sergeants  and  two  privates,  first  class. 
The  telegram  continues: — 

"The  above  in  addition  to  the  one  regimental  sergeant 
major  and  two  battalion  sergeants  major  heretofore  author- 
ized under  Table  of  Organiatiozn.  Select  the  eight  new 
men  from  those  who  have  been  engaged  in  the  personnel 
classification,  statistical,  and  insurance  work,  and  in  order 
to  give  the  statistical  and  personnel  men  all  an  equal  chance 
give  no  preference  in  making  selection  by  reason  of  any 
appointments  for  the  insurance  work  that  may  have  been 
made.  Insurance  men  rendered  extra  by  reason  of  not 
being  chosen  for  permanent  positions  will  be  continued  as 
assistants  at  Division  Headquarters.  It  is  appreciated  that 
the  above  is  not  sufficient  to  conduct  the  work  but  until  it  is 
determined  how  far  the  combined  work  can  be  simplified 
and  duplication  prevented  it  has  not  been  deemed  best  to 
provide  for  more  in  Tables  of  Organization.  You  will  con- 
tinue to  assign  as  many  men  in  addition  to  the  above  as  are 
necessary  for  the  work  and  the  permanent  personnel  will  be 
increased  later  if  shown  to  be  essential.  Instructions  as  to 
additional  permanent  commissioned  personnel  will  follow 
shortly." 
On  January  llth  the  following  telegram  was  sent: 

"The  following  additional  permanent  commissioned  per- 
sonnel is  authorized  as  assistants  to  Division  Adjutant: 
One  Major  or  Captain,  one  First  Lieutenant  and  one  Second 
Lieuten.-mt.  These  are  in  addition  to  the  one  Major  or 
Captain  now  authorized  as  assistant  adjutant.  Tables  of 
organization  of  August  nineteen  seventeen,  series  A, 

amended  accordingly, Name ....  and  ....  Name .... 

recommended  by  you  for  insurance  work  will  be  immediately 


248  HISTORY  OF  PERSONNEL 


commissioned  as and 

respectively  in  Adjutant  General's  Department  and  your 
personnel  officer  Captain ....  Name ....  will  be  immediately 
commissioned  in  same  rank  Adjutant  General's  Department. 
You  also  have  statistical  officers  commissioned  as  lieutenants 
Adjutant  General's  Department.  From  this  group  select 
three  to  fill  the  new  permanent  positions  on  your  staff 
wiring  names  to  this  office.  Those  not  selected  for  per- 
manent positions  will  be  retained  on  duty  in  Division  Adju- 
tant's office  and  when  division  goes  overseas  will,  if  suitable, 
remain  as  assistant  adjutants  of  new  divisions  or  be  assigned 
to  other  duty.  Co-ordinate  to  the  utmost  practicable  extent 
physically  and  administratively  all  work  relating  to  enlisted 
personnel,  including  the  vocational  classification,  statistical 
and  insurance  work,  in  order  to  prevent  duplication  of 
records  and  to  reduce  files  and  paper  work.  It  is  recognized 
that  the  additional  commissioned  personnel  may  not  be  ade- 
quate to  accomplish  all  the  work  at  present  required  but  it 
is  deemed  inadvisable  to  embody  a  larger  permanent  force 
in  the  Tables  of  Organization  at  present.  You  will  continue 
to  detail  as  many  additional  officers  as  may  be  necessary  to 
handle  the  work  thoroughly  and  expeditiously." 

These  two  telegrams  ordered  the  administrative  union  of 
Statistical,  Insurance  and  Personnel  Work  under  the  direction 
of  three  officers  and  eight  enlisted  men.  They  also  recognized 
that  additional  officers  and  enlisted  men  might  be  necessary  to 
the  carrying  on  of  such  work  and  authorized  such  temporary 
details.  Apparently  there  is  no  ambiguity  in  this  wording. 
But  many  different  interpretations  did  arise  in  the  camps  and 
for  several  months  letters  and  telegrams  were  sent  out  to  cor- 
rect misconstructions  and  to  effect  the  organization  outlined 
above.  On  February  9th  a  summarizing  letter  was  issued 
which  sets  forth  very  clearly  the  organization  and  functions 
of  the  then  existing  Personnel  Office. 

"1.  The  purpose  of  this  letter  is  to  summarize  previous 
orders  regarding  the  personnel  work  of  your  division  and  to 
clear  up  any  uncertainties  relative  to  it. 

"2.  Telegram  from  this  office  of  January  11  stated 
'Co-ordinate  to  the  utmost  practicable  extent  physically  and 
administratively  all  work  relating  to  enlisted  personnel,  in- 


RISE  OF  PAPER  WORK  249 

eluding  the  vocational  classification,  statistical  and  insur- 
ance work,  in  order  to  prevent  duplication  of  records  and 
to  reduce  files  and  paper  work.'  The  same  telegram  pro- 
vided for  three  new  commissioned  assistants  to  the  division 
adjutant  in  the  grades  of  one  major  or  captain,  one  first 
lieutenant  and  one  second  lieutenant,  respectively.  Those 
three  new  commissioned  assistants  were  directed  to  be 
selected  from  those  engaged  on  the  insurance,  classification 
and  statistical  work.  Those  officers  so  engaged  on  this  work 
and  not  selected  for  the  three  permanent  positions  were 
directed  to  be  attached  to  division  headquarters  for  such 
duty  as  required.  If  not  already  so  commissioned  these 
extra  officers  were  also  to  be  commissioned  in  the  Adjutant 
General's  Department. 

"3.  By  telegram  of  December  31,  1917,  eight  additional 
enlisted  men  in  grades  of  one  regimental  sergeant  major, 
two  battalion  sergeants  major,  three  sergeants,  two  privates, 
first  class,  all  in  Infantry,  were  authorized  to  be  selected 
from  those  engaged  on  the  above  three  classes  of  work,  for 
duty  in  the  division  adjutant's  office.  There  had  previously, 
by  Section  III.,  General  Order  No.  149,  War  Department, 
1917,  been  authorized  eight  enlisted  men  for  the  insurance 
work  alone.  Those  of  the  eight  men  selected  for  the  insur- 
ance work  under  the  prior  authority  and  not  chosen  for 
permanent  positions  were  directed  to  be  continued  as  assist- 
ants at  division  headquarters. 

"4>.  By  telegram  from  this  office  of  January  19,  1918,  it 
was  directed  that  the  statistical  work  theretofore  directed 
by  the  War  Department  to  be  carried  on  in  the  divisions  be 
discontinued.  It  was  intended  thereby  that  the  system  of 
.  statistics  and  information  based  on  a  distinct  statistical  com- 
missioned and  enlisted  personnel,  etc.,  should  be  abolished 
and  discontinued.  It  was  not  intended  to  prevent  the  keep- 
ing of  the  necessary  files  for  information  purposes.  Such 
records  and  files  as  are  found  essential  by  division  com- 
manders will  be  maintained  in  the  personnel  office. 

"5.     The  net  result  of  these  three  orders  is  as  follows: 

First:  In  addition  to  the  one  major  or  captain 
previously  authorized  under  the  Tables  of  Organization, 
August,  1917,  as  assistant  division  adjutant,  three  new 
commissioned  assistants  to  the  division  adjutant  are 
created  by  the  telegraphed  order  of  January  llth  as  fol- 
lows: 


250  HISTORY  OF  PERSONNEL 

One  major  or  captain  (to  be  known  as  division  per- 
sonnel officer),  one  first  lieutenant  and  one  second 
lieutenant. 

Second:  In  addition  to  the  one  regimental  sergeant 
major,  and  one  battalion  sergeant  major,  authorized  on 
The  Tables  of  Organization,  August,  1917,  as  enlisted 
assistants  to  the  division  adjutant,  eight  more  enlisted 
men  were  provided  in  the  telegram  of  December  31,  1917; 
these  eight  to  be  selected  from  the  eight  theretofore 
authorized  for  insurance  work  and  from  those  engaged  in 
the  statistical  and  classification  work. 

Third:  The  result  of  this  arrangement  is  to  leave  out 
of  the  permanent  positions  certain  officers  and  certain 
enlisted  men  previously  engaged  in  one  department  or 
another  of  the  work.  These  are  to  be  treated  as  follows : 
Commissioned  Officers,  not  selected  for  permanent  posi- 
tions to  be  retained  on  duty  if  desired,  as  additional  tem- 
porary assistants  to  the  division  personnel  officer,  their 
ultimate  assignment  to  be  determined  later:  Enlisted 
Men,  not  selected  for  permanent  positions  to  be  likewise 
retained  if  desired. 

"6.  The  one  major  or  captain  to  whom  is  given  the  title 
and  authority  of  division  personnel  officer,  will  have  general 
charge  under  the  division  adjutant  of  the  administration  of 
the  vocational  classification  and  insurance  work  and  other 
matters  relating  to  enlisted  personnel.  The  importance  of 
this  duty  and  the  necessity  of  having  an  officer  fully  capable 
of  handling  it  are  emphasized. 

"7.  It  is  appreciated  that  the  above  restrictions  on  the 
selection  of  officers  may  in  some  cases  have  resulted  either 
in  the  appointment  of  officers  not  entirely  suitable  for  the 
work  or  in  the  non-appointment  of  officers  whose  services 
would  be  desirable.  Accordingly,  if  due  to  the  restrictions 
prescribed  in  the  telegram  of  January  llth  or  for  any  other 
reason,  the  officers  selected  as  assistants  to  the  division  adju- 
tant and  the  extra  officers  above  referred  to  are  not  well 
fitted  for  their  duties  or  if  they  are  otherwise  not  satisfac- 
tory, you  will  so  report  to  this  office  with  recommendation 
as  to  disposition  to  be  made  of  them  and  as  to  the  appoint- 
ment of  their  successors. 

"8.  Every  effort  should  be  made  to  reduce  the  number  of 
card  files  at  division  headquarters.  Two  card  files  will  be 
maintained  at  division  headquarters  under  the  charge  of  the 


RISE  OF  PAPER  WORK  251 

division  personnel  officer;  first,  an  alphabetical  file  on  three 
by  five  cards  of  all  officers  and  enlisted  men  in  the  division, 
giving  the  grade,  company  and  regiment  or  arm  or  corps 
or  department,  and  Army  serial  number  of  each;  second,  a 
file  of  personnel  qualification  cards  (CCP-1)  filed  by  regi- 
ments. It  is  believed  that  no  other  files  of  record  cards 
should  be  necessary. 

"9.  The  file  of  officers'  qualification  cards  (CCP-1 101- 
R-l)  will  be  kept  in  the  custody  or  under  the  direct  super- 
vision of  the  division  commander  in  order  to  preserve  their 
confidential  nature.  The  regimental  commander  may  keep 
in  his  personal  custody  duplicates  covering  the  officers  of 
his  regiment  if  he  so  desires. 

"10.  A  plan  is  under  consideration  for  relieving  company 
commanders  of  paper  work  by  transferring  a  substantial 
part  of  it  to  a  regimental  personnel  officer.  This  will,  if 
approved,  involve  considerable  changes  in  present  procedure 
but  will  not  interfere  with  the  organization  of  the  personnel 
work  at  division  headquarters  as  above  outlined. 

By  order  of  the  Secretary  of  War." 

On  March  llth  still  another  letter  was  sent  in  order  to  cor- 
rect misunderstandings  in  the  field  which  were  affecting  the 
efficiency  of  the  work.  It  read  as  follows: 

"1.  It  appears  that  there  is  a  misunderstanding  of  the 
duties  of  the  senior  officer  of  the  three  officers  of  the  Adju- 
tant General's  Department  recently  added  to  the  staff  of 
the  division  commander. 

"2.  The  senior  of  these  is  called  the  'Personnel  Officer,' 
but  such  designation  is  not  intended  to  indicate  that  the 
duties  of  this  officer  are  identical  with  those  of  the  officer 
who  was  previously  known  as  the  personnel  classification 
officer,  or  that  they  relate  solely  or  principally  to  classifica- 
tion work. 

"3.  These  three  officers  are  charged  with  duties  relating 
to  the  enlisted  personnel  of  the  division,  such  as  classifica- 
tion war  risk  insurance,  allotments,  allowances,  assignments, 
transfers,  discharges,  etc.,  and  it  is  as  much  the  duty  of  the 
senior  personnel  officer  to  see  that  the  work  in  connection 
with  insurance,  allotments,  etc.,  is  properly  performed  as  it 
is  for  him  to  insure  the  proper  handling  of  the  work  relating 
to  classification. 


252  HISTORY  OF  PERSONNEL 

"4.  As  a  rule,  the  personnel  officer  should  not  take  per- 
sonal charge  of  the  vocational  classification  or  the  insurance 
Avork  at  division  headquarters,  but  should  exercise  general 
supervision  over  all  work  relating  to  enlisted  personnel." 

The  development  of  this  consolidation  has  been  related  in 
detail  as  it  played  a  very  great  part  in  personnel  work.  Dur- 
ing the  period  covered  by  this  correspondence  there  was  great 
unrest  because  of  the  many  misunderstandings  and  rivalries 
of  officers  in  the  three  lines  of  work.  Due  to  the  consolida- 
tion, the  personnel  officer  became  charged  with  a  large  amount 
of  paper  work  relating  to  the  handling  of  enlisted  men.  Once 
the  tendency  was  established  of  adding  paper  work  to  the  per- 
sonnel officers'  duties,  it  was  most  natural  that  it  should  con- 
tinue indefinitely  until  either  all  such  paper  work  should  be 
located  there  or  the  efficiency  of  the  work  in  the  personnel 
office  should  become  seriously  impaired  because  of  the  too 
great  load. 

In  the  next  chapter  on  Receiving  the  Draft,  another  impor- 
tant development  in  personnel  work  is  reviewed.  This  new 
function  brought  to  the  personnel  office  an  enormous  increase 
in  paper  work;  in  fact,  so  great  that  classification  and  place- 
ment of  men  became  only  one  of  the  many  functions  instead 
of  the  one  important  duty  to  be  accomplished. 


CHAPTER  20 

RECEIVING  THE  DRAFT 

HOW    THE     PERSONNEL     OFFICER     BECAME 
CHARGED  WITH  RECEIVING  THE  DRAFT 

In  most  national  army  camps  a  Mustering  Officer  was 
appointed  with  the  rank  of  lieutenant  colonel  or  colonel  who 
was  responsible  for  the  checking  of  selective  service  men 
against  their  Local  Board  forms,  and  the  preparation  of  their 
Enlistment  and  Assignment  Cards  (Form  22-2,  A.G.O.).  The 
camp  or  division  surgeon  conducted  the  physical  examination 
of  the  men,  and  the  company  commander  handled  the  remain- 
der of  the  forms  incident  to  their  enlistment  into  the  service. 
There  was  very  little  or  no  co-ordination  of  the  work  and  the 
whole  process  covered  a  considerable  space  of  time.  Each 
step  was  prepared  for  separately  and  required  that  the  men 
should  be  marched  to  some  building,  there  handled  and  then 
marched  back.  All  this  caused  a  great  deal  of  interference 
with  the  regular  drill  for  which  the  company  commander  was 
responsible.  As  most  of  the  officers  were  new  to  this  work 
there  resulted  inevitably  a  great  many  mistakes  and  oversights 
so  that  many  papers  were  incorrectly  made  out  and  many  not 
made  out  until  some  one  caught  the  oversight  possibly  months 
later. 

The  Upton  Plan.  In  only  one  camp,  as  far  as  now  known, 
was  there  a  really  systematic  attempt  during  September  to 
December,  1917,  to  co-ordinate  all  this  work  into  one  well- 
knit  organization.  This  was  Camp  Upton,  N.  Y.,  where  the 
personnel  officer,  Captain  F.  W.  Perry,  was  an  engineer  of 
large  business  experience.  It  was  most  natural  for  him  to  see 
the  possibilities  of  such  co-ordination  and  to  attempt  its  organ- 
ization. He  built  up  there  a  system,  whereby: 

253 


254  HISTORY  OP  PERSONNEL 

1.  All  physically  deficient  men  were  paid  off  and  sent 
home  within  twenty- four  hours  after  arrival.     (Paper  work 
was  greatly  reduced  on  this  class  of  men  because  no  records 
were  created  other  than  medical  record  and  Final  State- 
ment.) 

2.  All  accepted  men  were  definitely  assigned  according 
to  occupation  within  48   hours  after  arrival.     All  records 
created  for  these  men  in  one  central  office. 

3.  A  catalogue  card  was  created  and  on  file  in  the  divi- 
sion  catalogue  within  two  hours   after  a  man  arrived  in 
camp. 

About  the  middle  of  December,  Mr.  DeField  visited  Camp 
Upton  and  became  much  interested  in  the  work  Captain  Perry 
had  accomplished  as  a  phase  of  his  problem  of  cutting  down 
unnecessary  paper  work.  Mr.  DeField  in  a  12  page  type- 
written report  described  in  detail  just  how  the  plan  was  car- 
ried out. 

The  Letter  of  February  23,  1918.  Dr.  Strong,  fresh 
from  visits  in  several  camps,  appreciated  the  value  of  the 
whole  plan.  He  realized  that  there  was  great  need  for  just 
such  a  co-ordination  as  outlined  by  Mr.  DeField  and  that 
much  of  this  work  inevitably  would  be  put  upon  the  personnel 
officer.  Moreover,  unless  the  latter  did  do  such  work  in  an 
efficient  manner  it  was  going  to  react  unfavorably  upon  the 
classification  work.  In  other  words,  due  to  the  camp  organ- 
ization, there  was  no  possibility  of  keeping  personnel  work 
and  paper  work  apart.  Consequently  the  quicker  they  were 
consolidated  the  better  for  personnel  work  proper. 

Work  was  immediately  commenced  upon  a  revision  of 
DeField's  report  which  would  eliminate  local  features  and 
make  it  applicable  to  all  camps.  During  the  next  seven 
weeks  a  good  deal  of  time  was  devoted  to  this  subject.  A 
good  many  things  had  to  be  straightened  out  before  any  gen- 
eral instructions  could  be  issued.  There  were  certain  points 
on  which  rulings  were  necessary.  For  example,  under  wliat 
conditions  should  a  soldier  be  rejected  and  discharged  on 


RECEIVING  THE  DRAFT  255 

Form  638,  A.G.O.,  and  when  should  he  be  discharged  under 
the  provisions  of  Army  Regulations  and  given  a  discharge 
certificate  on  Form  525,  526,  or  527,  A.G.O.?  Then,  too,  it 
was  necessary  to  obtain  authority  for  the  issuance  of  such 
instructions,  for  they  prescribed  details  of  procedure  in  a  camp 
which  was  considered  entirely  within  the  jurisdiction  of  the 
Camp  Commander  and  it  was  not  the  general  policy  of  the 
War  Department  to  issue  instructions  of  that  sort.  Finally 
it  was  agreed  with  Brigadier  General  (later  Major  General) 
Harris  that  the  letter  could  be  issued  provided  that  it  did 
not  go  into  too  great  detail  as  to  procedure  and  that  it  was 
made  clear  that  the  instructions  were  not  orders  but  only  s.ug- 
gestions.  In  consequence,  the  letter  was  issued  on  February 
23rd  over  Brigadier  General  P.  C.  Harris'  signature,  with  a 
1st  Indorsement  by  The  Adjutant  General.  The  introductory 
paragraph  was  as  follows: 

"1.  Various  plans  for  receiving  and  assigning  new  men 
have  been  established  and  carried  out  in  the  cantonments. 
This  letter  outlines  a  successful  method  of  handling  these 
men  as  they  come  from  the  local  boards.  All  of  the  prac- 
tices here  suggested  have  been  thoroughly  tried  out  and  are 
known  to  be  successful.  These  suggestions  are  not  intended 
as  definite  orders  since  local  conditions  and  circumstances 
must  be  taken  into  account  and  it  is  intended  to  allow  all 
possible  latitude  for  the  division  commander  to  exercise  his 
discretion." 

This  letter  set  up  an  ideal  toward  which  personnel  officers 
worked,  sometimes  under  the  guidance  of  higher  ranking  offi- 
cers, but  more  often  only  as  the  personnel  officer  secured  per- 
mission for  a  new  step  after  many  conferences.  The  effect 
of  the  letter,  however,  was  disappointing  viewed  in  the  light 
of  such  changes  as  took  place  in  the  camps.  Careful  study 
of  the  situation  showed  very  clearly  that  most  officers  were 
unable  to  plan  out  the  details  necessary  in  order  thoroughly 
to  coordinate  the  work  of  receiving  men  into  camp.  If  the 
coordination  was  to  be  accomplished,  it  could  only  be  done 
through  supplying  personnel  officers  with  a  concrete  definite 


256  HISTORY  OF  PERSONNEL 

plan  which  they  could  adapt  to  local  needs  and  then  present 
to  their  commanding  officer  for  his  approval. 

In  consequence,  a  detailed  plan  was  prepared  and  issued 
April  20th  as  Chapter  IV.  of  the  Personnel  Manual.  It  was 
expressly  stated  in  connection  with  the  issuance  of  Chapter  I. 
of  the  Manual  (April  5th)  and  also  of  this  Chapter  that  the 
contents  of  the  Manual  were  not  to  be  construed  as  War 
Department  Regulations,  but  merely  as  suggestions  as  to  how 
such  regulations  might  be  carried  on  in  the  most  effective 
manner.  Great  care  was  exercised,  however,  that  nothing 
should  be  included  but  what  was  according  to  regulations  or 
clearly  to  be  inferred  from  regulations.  (A  later  revision  of 
this  Chapter  is  given  in  Volume  II.,  Chapter  IV.). 

Commencing  almost  from  the  time  the  Chapter  was  issued 
there  developed  a  noticeable  drift  toward  the  plan  outlined 
in  it,  but  practically  nowhere  did  any  one  attempt  to  set  up 
the  whole  scheme  at  one  time.  Rather  one  detail  at  a  time 
was  taken  up  and  carried  through,  and  then  another. 

The  Funston  Plan.  One  direct  result  of  the  letter  of  Feb- 
ruary 23rd  was  a  reply  letter  signed  by  Colonel  M.  O. 
Bigelow,  commanding  officer  of  the  164th  Depot  Brigade, 
Camp  Funston.  This  outlined  in  detail  the  procedure  followed 
there  in  receiving  the  draft,  which  had  been  developed  under 
the  direction  of  Major  F.  C.  Reilly,  and  showed  that  this 
camp,  like  Camp  Upton,  had  evolved  a  well  coordinated  plan. 
It  reported  a  new  feature,  namely  the  issue  of  Q.  M.  and 
Ordnance  articles  in  the  Recruit  Examination  Building.  The 
recruit  undressed  and  turned  his  old  clothes  over  to  the  ex- 
press company  for  shipment  home.  His  barrack  bag  was 
issued  to  him,  in  which  he  placed  private  possessions  he  might 
keep.  After  his  physical  examination  he  passed  through  a 
department  under  the  direction  of  the  Camp  Quartermaster 
in  which  he  was  completely  outfitted  with  clothing,  shoes,  etc. 
Such  coordination  of  Quartermaster  work  with  Medical  and 
Personnel  had  not  taken  place  up  to  this  time  at  any  other 
camp. 


RECEIVING  THE  DRAFT  257 

This  letter  did  not  reach  The  Committee  on  Classification 
of  Personnel  until  some  time  after  April  20th.  Attention  was 
called  to  the  feature  by  letter  to  the  Committee's  supervisors 
and  in  a  personal  way  to  personnel  officers  who  visited  Room 
526,  War  Department.  The  innovation  was,  however,  a  radi- 
cal one  and  no  result  followed.  In  the  second  revision  of 
Chapter  IV  on  June  1st  two  pages  were  devoted  to  the  plan. 

This  revision  emphasized  the  advantages  of  still  greater 
coordination  with  the  Camp  Medical  Officer,  the  Depot  Bri- 
gade Supply  Officer,  the  Psychological  Examiner  and  the 
Depot  Brigade  Commander  to  the  end  that  every  detail  inci- 
dent to  the  receiving  of  selective  service  men  might  be  accom- 
plished promptly,  accurately  and  with  the  minimum  of  effort. 
Particular  attention  was  called  to  the  necessity  of  completing 
the  papers  of  men  rejected  by  the  camp  surgeon  and  his 
prompt  shipment  home. 

Effect  of  Personnel  Schools  upon  Receiving  the  Draft.  A 
very  important  factor  in  the  further  development  of  the  per- 
sonnel office  and  its  closer  coordination  with  other  offices  in 
the  camp  was  the  Schools  for  Personnel  Officers.  Up  to  the 
time  of  the  signing  of  the  armistice  eleven  such  schools  were 
held  commencing  at  Camp  Meigs,  Washington,  D.  C.,  April 
25-May  4.  The  Schools  were  held  in  different  sections  of 
the  country,  as  follows :  Camps  Bowie,  Gordon,  Grant,  Lewis, 
Kearney,  Travis,  Meigs  (8th,  9th  and  10th  schools)  and 
Sherman.  In  these  schools  great  stress  was  laid  upon  the 
plan  of  receiving  men  into  camp  as  described  in  Chapter  IV 
of  the  Manual  and  the  officers  and  men  were  expected  thor- 
oughly to  understand  all  of  the  steps  involved.  The  value  of 
the  schools  was  quickly  demonstrated  in  the  rapid  develop- 
ment of  the  personnel  office  in  camps  represented  at  the 
schools.  What  had  not  been  accomplished  by  the  letter  of 
February  23rd  nor  by  Chapter  IV  was  achieved  through  per- 
sonnel instruction  for  a  few  hours.  This  was  true  of  nearly 
all  the  camps  as  shown  by  visits  of  supervisors. 


258  HISTORY  OF  PERSONNEL 

RECOGNITION  OF  PERSONNEL   OFFICERS   AS 
RESPONSIBLE  FOR  RECEIVING  THE  DRAFT 

For  a  considerable  period  of  time  there  was  no  real  recogni- 
tion by  the  War  Department  of  the  fact  that  personnel  officers 
were  charged  with  any  duties  besides  the  handling  of  qualifi- 
cation cards,  insurance  and  allotments  and  such  statistical 
work  as  still  remained  over  from  the  old  Statistical  Division. 
It  is  true  that  the  letter  of  February  23rd  suggested  that  the 
personnel  officer  might  handle  the  paper  work  incident  to 
receiving  the  draft,  but  it  did  not  prescribe  that  it  should  be 
done  and  at  most  camps  little  attention  was  paid  to  the  sugges- 
tion. The  first  real  recognition  of  the  situation  occurred  in 
connection  with  increasing  the  force  of  the  personnel  office. 

Authorization  of  Enlarged  Force.  In  connection  with 
Table  400-Headquarters,  Depot  Brigade,  a  letter  from  The 
Adjutant  General's  Department  of  May  15th  was  issued  which 
authorized  3  officers  and  79  enlisted  men  for  the  Camp  Per- 
sonnel Office.  Since  January  3rd  only  8  enlisted  men  had 
been  authorized  for  the  personnel  office,  notwithstanding  the 
large  amount  of  work  then  being  carried  on.  And,  in  fact, 
by  the  time  the  new  additional  force  was  authorized  it  was 
clearly  inadequate,  so  fast  had  grown  the  work  in  the  camps. 

Three  important  points  were  brought  out  in  this  letter. 
First,  it  was  emphasized  that  "while  the  Personnel  Office  is 
an  adjunct  of  the  Adjutant's  Office  it  must  be  definitely  under- 
stood that  the  personnel  force  is  not  to  be  charged  with  any 
of  the  routine  work  of  the  Adjutant's  Office"  and  again  "these 
men are  for  personnel  work  only  and  it  must  be  em- 
phatically understood  by  all  concerned  that  these  men  will 
not  be  assigned  to,  or  placed  upon,  any  duty  that  will  inter- 
fere in  any  way  with  their  personnel  work."  This  provision 
was  necessary  in  order  to  keep  separate  the  work  of  the  Per- 
sonnel Officer  and  the  Adjutant.  As  the  latter  ranked  the 
former,  it  was  natural  for  him  to  encroach  upon  the  former's 
prerogatives  unless  specifically  forbidden. 


RECEIVING  THE  DRAFT  259 

Second,  it  was  pointed  out  "that  one  lieutenant  will  have 
charge  of  insurance  work,  the  other  of  personnel  work,  with 
the  captain  in  general  supervision  over  the  whole,  but  it  is 
expected  and  intended  that  all  three  officers  be  familiar  with 
all  phases  of  personnel  work  and  able  to  act  in  any  capacity 
therein."  The  quoted  sentence  emphasized  by  lack  of  refer- 
ence to  statistical  work  the  complete  absorption  of  this  work 
in  the  personnel  organization  and  it  also  emphasized  the  co- 
ordination of  insurance  and  personnel  work  but  also  their 
relative  independence,  which  continued  until  the  signing  of 
the  armistice. 

And  third,  the  letter  made  clear  that  depot  brigades  were 
to  become  "the  great  receiving  centers  for  men  drafted  into 
military  service"  and  emphasized  "the  importance  of  the 
proper  functioning  of  the  Personnel  Officer."  Continuing  it 
added:  "the  accurate  classification  of  all  men  as  received,  the 
proper  preparation  of  all  initial  papers,  and  the  expeditious 
and  proper  operation  of  this  office  will  do  more  than  anything 
else  to  properly  utilize  the  man  power  of  the  country  called 
into  military  service.  To  secure  this  result,  the  intelligent 
and  earnest  cooperation  of  all  concerned  is  vitally  essential." 

Up  to  this  time  one  of  the  greatest  obstacles  to  efficient  per- 
sonnel work  lay  in  the  fact  that  there  was  no  reservoir  to 
which  skilled  men  could  be  assigned  and  kept  until  needed  and 
also  that  all  drafted  men  could  not  be  held  in  a  temporary 
organization  until  properly  classified,  examined,  clothed,  etc., 
and  then  be  assigned  according  to  their  individual  qaulifica- 
tions.  Table  of  Organization  No.  400  and  this  letter  of  May 
15th  made  just  such  a  reservoir  possible.  •  From  this  time  on 
criticism  of  personnel  work  in  that  it  took  good  men  away 
from  the  companies  died  down  and  practically  disappeared. 
Such  a  practice  was  no  longer  necessary  as  now  there  was 
time  in  which  to  arrange  for  a  scientific  placement  of  men. 

General  Orders  No.  60.  On  June  24th,  General  Orders  No. 
60  was  printed.  This  order  changed  the  title  of  Personnel 
Officer  to  that  of  Personnel  Adjutant.  It  classified  the  work 


260  HISTORY  OF  PERSONNEL 

of  all  adjutants  and  designated  what  was  to  be  accomplished 
by  camp,  station,  or  unit  adjutants  as  distinguished  from  per- 
sonnel adjutants,  and  further  distinguished  between  the  duties 
of  a  camp  or  division  personnel  adjutant  (primarily  a  classi- 
fication officer)  and  the  regimental  personnel  adjutant  (pri- 
marily a  pay-roll  officer).  Camp  or  Division  Personnel  Adju- 
tants were  here  charged  with: 

"b.  (1)  Records  and  correspondence  relating  to  induction  of 
selective  service  men,  vocational  classification,  allot- 
ments, and  insurance. 

(2)  Preparation    of    payrolls,     pay     cards,    reports     of 
changes,   rosters   of  officers,   rosters   of  troops,  duty 
rosters,  strength  reports,  and  other  periodical  reports 
and  returns  of  personnel. 

(3)  Assignments,   transfers,    ratings,   promotions,   reduc- 
tions, and  other  matters  relating  to  enlisted  person- 
nel  not    included    in    class   A(l)    i.    e.,    'instruction, 
training,  discipline  and  equipment.'  " 

Letter  of  July  30th,  (A.G.O.)  authorized  the  assignment  of 
"an  assistant  personnel  adjutant  to  perform  the  duties  speci- 
fied in  paragraph  b  (2),  or  so  much  thereof  as  relates  to  the 
preparation  of  pay-rolls  and  pay  cards  for  headquarters  de- 
tachments and  organizations  for  which  no  personnel  adju- 
tants are  appointed  under  the  provision  of  General  Orders 
No.  42,  War  Department,  1918."  Thus  such  pay-roll  work 
was  definitely  excluded  from  the  duties  of  a  Camp  or  Divi- 
sion Personnel  Adjutant. 

This  order  established  the  .personnel  office  as  the  office 
which  was  responsible  for  handling  drafted  men  as  far  as 
their  papers  were  concerned,  including  assignment  and 
transfer. 

The  order,  however,  was  not  free  from  ambiguity  so  far  as 
concerned  the  smaller  camps  of  the  country,  such  as  Flying 
Fields,  Coast  Artillery  Defenses,  etc.  And  for  several  months 
considerable  trouble  was  experienced  by  the  personnel  organ- 
ization in  effecting  well  coordinated  personnel  work  in  such 


RECEIVING  THE  DRAFT  261 

camps.     (See  the  following  chapter  for  further  consideration 
of  this  point.) 

Seven  Officers  and  Two  Hundred  Enlisted  Men.  Table  of 
Organization,  Camp  Headquarters  No.  411,  dated  July  15, 
1918,  but  not  issued  until  about  August  15th,  authorized  a 
further  increase  of  officers  and  enlisted  men,  totaling  7  officers 
and  200  men  in  camps  with  Depot  Brigades  and  5  officers  and 
16  men  in  camps  without  Depot  Brigades.  In  detail,  the 
authorized  force  consisted  of 

Camp  with      Camp  without 
Depot  Brigade  Depot  Brigade 

Major  or  Captain 1  1 

Captain  or  1st  Lieutenant 3  2 

1st  or  2nd  Lieutenant 3  2 

Regimental  Sergeant  Major 8  2 

Battalion  Sergeant  Major 12  2 

Sergeant    40  3 

Corporal    40  3 

Private,  first  class 70  3 

Private    30  3 

Experience  has  shown  that  the  force  for  the  Camp  with  a 
Depot  Brigade  was  sufficient,  but  not  in  the  case  of  the  Camp 
without  a  Depot  Brigade.  The  force  of  enlisted  men  in  this 
case  should  have  been  at  least  double  that  allowed.  And  in 
camps  without  a  Depot  Brigade  with  a  Replacement  Camp, 
a  still  larger  force  was  essential. 

Personnel  Force  for  Trade  Test  Work.  In  addition  to 
the  above  there  was  needed  an  additional  force  of  officers  and 
enlisted  men  for  trade  test  work.  Such  a  force  was  never 
authorized  but  probably  would  have  been  if  the  war  had  con- 
tinued a  short  time  longer.  The  following  is  the  estimate 
recommended  by  Maj.  Gen.  H.  Jervey  of  the  General  Staff: 

1   Captain  or  First  Lieutenant  especially  trained  in  Trade 

Testing. 
1   1st  Lieutenant  or  2nd  Lieutenant  especially  trained  in 

Trade  Testing'. 


262  HISTORY  OF  PERSONNEL 

1  Regimental  Sergeant  Major. 

2  Battalion  Sergeants  Major. 
6  Sergeants. 

2  Corporals. 
30  Privates,  first  class. 

General  Orders  No.  86,  dated  September  18,  1918.  This 
order  called  attention  to  indiscriminate  transfers  of  enlisted 
men  and  that  "the  Adjutant  General's  Department  has  on  file 
records  of  the  qualifications  of  all  enlisted  men,  and  is  pre- 
pared to  fill  all  positions  in  the  service  in  so  far  as  they  can 
be  filled  by  enlisted  men."  The  order  goes  on  to  prescribe 
rules  for  such  transfers,  and  then  adds,  "when  an  organization 
of  Class  1  requires  enlisted  men,  its  commanding  officer  will 
submit  to  the  division  or  camp  commander,  as  the  case  may 
be,  a  requisition  showing  the  qualifications  of  the  men  desired. 
The  personnel  adjutant,  under  the  direction  of  his  commander, 
will  fill  the  requisition  in  so  far  as  the  enlisted  personnel 
of  Class  1  allows.  If  the  requisition  cannot  be  filled  locally,  it 
will  be  forwarded  to  the  Adjutant  General  of  the  Army  show- 
ing vacancies  still  unfilled " 

This  general  order  recognized  fully  the  personnel  system 
as  then  operating  both  as  to  the  camp  office  and  the  central 
allotment  office  at  Washington. 

A  poem  written  by  George  A.  Flesh,  a  private  in  one  of  the 
personel  offices,  tells  the  story  of  this  period  and  from  an 
angle  not  otherwise  recorded  here. 

THE  RIME  OF  THE  PERSONNEL 

l 

Yes — they  took  me  in  the  Army, 
Gave  me  shoes  and  uniform; 
Made  a  dummy  soldier  of  me, 
Far  from  where  the  battles  storm, 
I  ain't  got  no  gun  or  bay'net, 
Never  seen  a  cannon  yet — 
Why,  they  won't  let  me  go  marchin' 
Do  you  wonder  that  I  fret? 


RECEIVING  THE  DRAFT  263 


But  I  write,  write,  write, 

Gee — the  beggars  keep  me  workin'  half  the  night; 

And  there  ain't  no  blood  and  thunder 

'Ceptin'  when  you  make  a  blunder; 

Lord — I  wisht  I  had  a  gun  so's  I  could  fight. 

2 

All  the  blessed  livin'   daytime, 

On  a  hard  and  narrow  seat, 

We  just  sit  and  write  up  so'jcrs 

And  it's  awful  in  the  heat. 

While  the  sun  beats  down  like  fury, 

While  the  dust  is  everywhere, 

We  just  sit  and  write  up  rookies, 

Prayin'  for  a  breath  of  air. 

We  just  write,  write,  write, 

Gee — the  beggars  keep  us  workin'  half  the  night; 

And  they  laugh  at  us  and  jeer  us 

For  no  enemy  ain't  near  us; 

Lord — I  wisht  I  had  a  gun  so's  I  could  fight. 


We  just  sit  and  ask  'em  questions: — 
Where  they  live  and  what's  their  age? 
Was  they  ever  in  the  Service? 
Why — the  answers  fill  a  page. 
If  they  croak,  where  should  we  send  'em? 
Where's  their  birthplace,  who  they  keep? 
And  some's  so  bloomin'  ign'rant 
That  their  dumbness  makes  you  weep. 

We  just  write,  write,  write, 

Gee — the  beggars  keep  us  workin'  half  the  night; 

Yep — we're  in  the  Personnel, 

If  you  ask  me — why,  its  hell; 

Lord — I  wisht  I  had  a  gun  so's  I  could  fight. 


For  we'll  stay  here  till  it's  over 
And  the  boys  come  marchin'  back, 


264  HISTORY  OF  PERSONNEL 

Tellin'  how  they  licked  the  Germans, 
How  they  gave  Wilhelin  the  sack. 
But  even  then  they'll  keep  us, 
Lettin'  out  what  we  let  in, 
Then  they'll  send  us  back  to  home  folks, 
Who  will  greet  US  with  a  grin. 

For  we  wrote,  wrote,  wrote, 

No — we  didn't  cross  no  ocean  in  a  boat; 

And  we  didn't  see  no  fightin', 

We  was  too  damn  busy  writin'; 

Do  you  wonder  that  I  think  I  am  the  Goat? 

Conclusion.  During  the  period  from  February  23rd  to 
about  August  15th  the  personel  office  gradually  developed  from 
a  small  office  handling  only  classification  work,  insurance, 
allotments  and  miscellaneous  paper  work  to  a  very  large  office 
responsible  for  all  paper  work  incident  to  the  receiving  of 
drafted  men.  This  development  was  mainly  due  to  influences  in 
the  camps  themselves.  The  work  of  the  Committee  on  Classi- 
fication of  Personnel  as  it  affected  this  development  was 
almost  entirely  to  speed  up  a  coordination  which  it  appre- 
ciated inevitably  must  come.  As  each  step  was  thoroughly 
established  the  War  Department  recognized  it  and  made  pro- 
vision for  its  continuance. 


Following  the  Camp  Gordon  School  for  Personnel  Officers, 
Major  (then  Captain)  G.  T.  Wilhelm,  Camp  Personel  Officer 
of  Camp  Jackson,  drew  up  plans  for  a  Personnel  Building 
which  would  include  the  work  of  the  Medical  Officer,  Quar- 
termaster Officer  and  Personnel  Officer.  The  plans  were 
received  by  the  War  Department  early  in  June,  but  no  action 
resulted.  They  were  used,  however,  as  an  exhibit  in  all  the 
schools  for  personnel  officers  held  thereafter  and  helped  appre- 
ciably in  spreading  the  idea  of  such  a  building  throughout  the 
camps.  From  a  number  of  camp  commanders  during  the 


RECEIVING  THE  DRAFT  265 

next  six  months  requests  for  such  a  building  were  received 
by  the  War  Department. 

Camp  Funston  from  early  days  had  practically  such  a  build- 
ing utilizing  several  adjoining  barrack  buildings  for  this  work. 
Camp  Travis  later  did  the  same.  By  August  1st  Major  Luther 
Hoffman,  Camp  Personnel  Officer  of  Camp  Travis,  had  sub- 
mitted a  set  of  drawings  in  which  all  details  were  carefully 
considered. 

Following  the  return  to  Washington  of  Dr.  Strong  a  con- 
ference was  held  there,  September  16  to  21,  of  seven  of  the 
Personnel  Adjutants  most  interested  in  such  a  building.  They 
were  Major  C.  L.  Abel  of  Camp  Sherman,  Major  C.  R.  Coffin 
of  Camp  Wadsworth,  Captain  (later  Major)  T.  R.  Elkins  of 
Camp  Funston,  Major  E.  B.  Hawks  of  Camp  Dix,  Major 
Luther  Hoffman  of  Camp  Travis,  Major  O  .C.  Lloyd  of  Camp 
Jackson  and  Major  G.  T.  Wilhelm,  formerly  of  Camp  Jack- 
son, but  then  engaged  in  installing  trade  tests  in  the  camps. 
Several  supervisors  were  also  in  attendance.  As  a  result  of 
this  conference  the  whole  procedure  of  handling  drafted  men 
was  thoroughly  standardized.  (See  Chapter  IV.  of  Vol.  II. 
for  the  final  write-up  of  this  plan.)  And  plans  for  a  building 
to  accommodate  the  work  were  roughly  drawn  up. 

Following  the  conference  Mr.  D.  J.  O'Connor  and  Dr. 
Strong  completed  the  write-up  of  the  plan  and  the  drawings 
of  the  building.  Majors  Elkins  and  Hoffman  aided  materially 
in  this  work.  Before  the  final  details  could  be  completed  it 
was  necessary  to  obtain  the  official  O.  K.  of  the  Surgeon  Gen- 
eral's Office  and  the  Quartermaster  General's  Office.  This 
took  considerable  time.  An  appropriation  for  $1,250,000  was 
authorized  by  the  Secretary  of  War  on  October  14th  and  the 
plans  were  finally  approved  a  few  days  before  the  armistice 
was  signed  and  actually  in  the  mail  on  that  day.  This  author- 
ization provided  for  the  construction  of  one  of  the  Recruit 
Examination  Buildings  in  each  of  the  16  Depot  Brigade 
Camps.  The  plans  are  shown  in  connection  with  Chapter  IV 
of  the  Personnel  Manual  (Volume  II.). 


266  HISTORY  OF  PERSONNEL 

Large  as  the  appropriation  seems,  it  was  felt  by  all  those 
intimately  concerned  with  the  work  that  the  buildings  would 
pay  for  themselves  in  three  or  four  months.  They  would  have 
permitted  a  smaller  force  of  officers  and  enlisted  men  to  per- 
form all  the  work  incidental  to  receiving  drafted  men.  They 
would  have  insured  rejected  men  being  returned  home  more 
promptly  than  in  the  past.  The  saving  here  alone  would  be 
great.  For  example,  at  one  camp  rejected  men  were  kept  on 
the  average  seven  days  in  camp.  A  conservative  estimate  of 
the  cost  to  the  government  for  maintenance  and  pay  is  $2 
a  day.  The  new  plan  would  make  possible  the  shipping  of 
such  men  home  on  the  second  day,  saving  five  days's  time  or 
$10  apiece.  Two  thousand  such  men  were  sent  home  a  month, 
representing  a  loss  to  the  government  of  $20,000  per  month 
at  this  one  camp,  to  say  nothing  of  the  loss  to  the  nation  in- 
curred by  the  non-employment  of  2,000  men  for  five  days. 
The  buildings  with  their  thoroughly  standardized  procedure 
would  undoubtedly  have  secured  a  still  more  accurate  prepara- 
tion of  enlistment  papers  thereby  cutting  down  materially 
clerical  work  and  correspondence  concerning  mistakes,  not  to 
mention  down-right  losses  to  the  government  or  the  soldier 
due  to  such  mistakes. 

SHIPPING  MEN  OUT  OF  THE  DEPOT  BRIGADE 

One  of  the  great  problems  incident  to  paper-work  is  the 
thorough  enforcement  of  orders  requiring  that  papers  relating 
to  the  soldier  shall  always  accompany  him  when  he  is  trans- 
ferred and  that  they  shall  have  been  properly  prepared.  Chap- 
ter 37  discusses  this  problem  as  it  related  to  the  shipment  of 
men  overseas  and  relates  how  a  thorough  inspection  was  made 
of  all  papers  before  the  men  boarded  ship.  The  same  prob- 
lem existed  at  each  point  where  enlisted  men  (and  officers  too) 
were  transferred  from  one  organization  to  another. 

After  the  personnel  adjutant  became  charged  with  the 
responsibility  of  receiving  men  into  camp,  it  naturally  followed 
that  he  should  likewise  be  charged  with  checking  the  soldier's 


RECEIVING  THE  DRAFT  267 

papers  as  they  were  shipped  out  of  cainp.  This  added  duty 
developed  all  the  sooner  because  the  qualification  card  was  the 
most  likely  paper  not  to  be  sent  with  the  soldier.  This  was 
due  to  the  fact  that  it  was  kept  at  Camp  Headquarters  and 
the  company  commander  knew  little  of  its  existence.  A  great 
deal  of  trouble  was  experienced  in  this  respect.  Letter  after 
letter  was  sent  out  from  The  Adjutant  General's  Office  insist- 
ing that  the  cards  must  go  with  the  men.  But  the  matter  was 
never  thoroughly  carried  out  until  the  personnel  adjutant  per- 
sonally saw  to  it  that  qualification  cards  went  with  the  men. 
Later  when  it  was  fully  realized  that  the  other  papers  were 
not  made  out  nor  endorsed  properly  and  not  always  sent  with 
the  men  the  personnel  adjutant  commenced  checking  them  also. 
As  this  work  progressed,  one  after  another  of  the  camps 
issued  orders  that  all  men  leaving  camp  should  report  to  the 
personnel  office  where  the  papers  were  checked.  In  this  way, 
the  shipping  section  came  to  be  an  integral  part  of  the  camp 
personnel  office.  When  the  armistice  was  signed  and  demo- 
bilization commenced  there  already  existed  a  good  machine  in 
terms  of  which  to  organize  the  checking  force  necessary  in 
order  that  all  discharge  papers  could  be  certified  as  properly 
made  out. 


CHAPTER  21 
PERSONNEL  WORK  IN  STAFF  CORPS  CAMPS 

From  the  time  personnel  work  was  introduced  into  the  Na- 
tional Army  Camps  in  September,  1917,  until  the  armistice, 
November,  1918,  there  was  a  steady  progression  in  its  develop- 
ment within  the  larger  camps.  All  this  has  been  traced  in 
preceding  chapters.  The  development  of  personnel  work  in 
the  smaller  camps  under  the  direction  of  the  various  staff  corps 
and  departments  of  the  army  was  not  so  satisfactory.  Up  to 
the  summer  of  1918,  and  even  later  in  many  cases,  little  real 
personnel  work  had  been  done  in  these  camps.  The  history 
of  such  work,  on  the  whole,  can  be  summarized  by  saying,  a 
personnel  supervisor  visited  the  camp,  installed  the  system 
and  trained  some  officers  and  enlisted  men.  Sometime  later  a 
second  visit  would  reveal  very  little  or  nothing  of  the  office 
that  had  been  established.  Nearly  always  some  qualification 
cards  could  be  found  but  the  men  to  whom  they  referred  might 
be  in  France  and  the  men  then  in  camp  might  have  had  no 
cards  made  out  for  them.  In  other  camps  the  office  had  con- 
tinued but  the  supervisor  would  find  an  entirely  new  set  of 
officers  and  enlisted  men  in  charge  with  no  training  for  the 
work  and  no  real  insight  or  enthusiasm. 

Two  striking  exceptions  to  the  general  run  of  such  experi- 
ences were  the  Quartermaster  Corps,  Camp  Joseph  E.  John- 
ston at  Jacksonville,  Florida,  and  the  Ordnance  Dep't.,  Camp 
Hancock  at  Augusta,  Georgia.  At  the  former  Major  Claude 
M.  Fuess  was  placed  in  charge  of  personnel  work  and  at  the 
latter  Lieutenant  N.  L.  Hoopingarner.  Both  of  these  men 
were  enthusiastically  interested  in  the  work,  were  commis- 
sioned from  civil  life  to  carry  it  on  and  were  allowed  to  do 
good  work. 

268 


PERSONNEL  WORK  269 

Two  main  reasons  may  be  assigned  for  this  general  lack  of 
efficient  personnel  work  in  the  smaller  camps: — first,  rapid 
shifting  of  officers  in  the  camps,  and  second,  lack  of  real  per- 
sonnel organization  in  the  staff  corps  offices  at  Washington. 
And  in  many  respects  this  second  cause  was  likewise  due  to 
the  rapid  shifting  of  officers  at  Washington.  Repeatedly  super- 
visors reported  on  visiting  one  of  these  camps  a  second  time 
that  there  wasn't  an  officer  nor  enlisted  man  there  whom  he 
had  previously  met  and  trained.  Naturally,  little  of  a  con- 
structive nature  could  be  expected.  It  should  be  explained  in 
fairness  to  the  Washington  offices  that  all  officers  wanted  to 
go  to  France;  in  consequence,  competent  officers  for  personnel 
work  secured  an  opportunity  and  were  ordered  overseas. 
This  was  very  trying  for  the  Committee  as  it  had  to  spend  a 
great  deal  of  time  in  making  such  contacts,  in  interesting 
ranking  officers,  securing  the  appointments  of  competent  offi- 
cers and  then  training  them,  only  to  have  to  do  it  all  over 
again  in  a  short  time. 

Just  as  personnel  work  developed  almost  entirely  in  the  line 
through  demonstrating  its  value  in  the  camps  and  then  having 
the  new  features  recognized  by  the  War  Department  through 
official  orders,  so  it  likewise  developed  in  the  smaller  camps 
first  and  then  was  authorized  later.  Traveling  supervisors 
accomplished  much  in  this  way.  But  the  Schools  for  Per- 
sonnel Adjutants  did  much  more.  Permission  was  obtained 
from  the  Staff  Corps  offices  to  send  selected  officers  to  these 
schools  and  then  at  the  schools  they  were  enthused  and 
equipped  for  their  work.  After  they  had  attended  the  per- 
sonnel schools,  it  was  also  easier  to  make  arrangements  where- 
by they  would  be  kept  on  the  job. 

PERSONNEL  WORK  IN  THE  COAST  ARTILLERY 

CORPS 

The  Coast  Artillery  Corps  may  be  taken  as  an  example,  as 
showing  some  of  the  difficulties  encountered  and  the  final  out- 
come. 


270 HISTORY  OF  PERSONNEL 

There  are  twenty-seven  coast  defenses  (comprising  about 
one  hundred  forts),  five  Coast  Artillery  Districts,  and  the 
Coast  Artillery  Training  Center  (comprising  Reserve  Officers' 
Training  Camp,  Enlisted  Specialists  and  Motor  Transport 
Schools,  and  the  school  of  Fire  at  Camp  Eustis). 

In  November,  1917,  qualification  cards  were  sent  to  all 
Coast  Defenses.  Some  few  were  filled  out,  a  smaller  number 
were  used,  but  nothing  of  value  resulted  from  this  trial. 
Numerous  attempts  were  made  by  supervisors  of  the  Com- 
mittee to  install  a  system  of  classification  in  the  various  coast 
defenses,  but  without  marked  result  until  the  issuance  of  Gen- 
eral Orders,  Nos.  42,  46  and  60,  W.  D.,  1918.  Under  author- 
ity given  in  these  orders  personnel  adjutants  were  detailed  by 
Coast  Defense  commanders,  and  an  effort  was  made  to  do  the 
work  pertaining  to  records.  As  yet,  however,  no  effort  was 
made  to  use  the  qualification  cards  for  making  assignments 
in  the  formation  of  units. 

During  June  and  July,  1918,  an  attempt  was  made  to  pre- 
pare tables  of  occupational  needs  for  overseas  units.  Due  to 
lack  of  time  and  insufficient  help,  these  preliminary  tables 
proved  of  little  use.  A  very  common  error  was  made,  in  that 
these  tables  called  for  an  unduly  large  number  of  technically 
educated,  or  very  highly  skilled  men.  By  the  end  of  July,  it 
became  evident,  that,  if  any  good  results  were  to  be  obtained 
by  the  personnel  system  in  the  Coast  Artillery,  officers  must 
be  trained  and  used  for  that  work  exclusively.  Captain  (later 
Major)  D.  W.  K.  Peacock  was  detailed  for  duty  in  the  office 
of  the  Chief  of  Coast  Artillery,  and  on  reporting  July  25, 
1918,  was  instructed  to  study  the  system,  become  acquainted 
with  officials  in  Washington,  and  later  to  submit  recommenda- 
tion. This  officer  attended  the  eighth  personnel  school  held 
at  Camp  Meigs,  August  7  to  14,  then  made  a  tour  of  impor- 
tant nearby  coast  defenses.  A  detailed  recommendation  was 
submitted  by  him  on  August  30  and  was  tentatively  approved. 

After  a  thorough  canvass  of  the  situation  regarding  the 
rapid  shifting  of  officers  and  its  deleterious  effect  on  personnel 


PERSONNEL  WORK 271 

work,  authority  was  granted  on  August  16,  1918,  to  commis- 
sion coast  artillery  officers,  then  engaged  in  personnel  work,  in 
the  Adjutant  General's  Department,  and  assign  them  to  coast 
defenses  as  personnel  adjutants.  Such  officers  were  then  under 
orders  from  the  Adjutant  General's  Department  and  could  be 
kept  permanently  at  personnel  work.  About  fort}r  selected 
Coast  Artillery  officers  and  enlisted  men  were  ordered  to 
attend  the  tenth  personnel  school  at  Camp  Meigs  in  Septem- 
ber. From  this  number  those  particularly  qualified  were 
selected,  transferred  to  the  A.  G.  D.  ,and  sent  to  the  more 
important  coast  defenses  as  personnel  adjutants. 

These  officers  were  charged  with  a  considerable  amount  of 
paper  work  incident  to  the  handling  of  enlisted  men,  including 
receiving  them  from  draft  boards,  mustering  them  into  the 
service  and  their  eventual  assignment. 

Provision  was  made  for  the  assignment  of  one  Coast  Artil- 
lery officer  as  Assistant  Personnel  Adjutant  at  each  Fort,  his 
duties  being  to  make  payrolls,  reports  of  changes  and  do  other 
strictly  paper  work  pertaining  to  the  enlisted  men  of  that  fort. 
The  Coast  Defense  personnel  adjutant  was  responsible  that 
these  assistants  did  proper  work,  and  was  the  sole  officer 
chargeable  with  the  assignment  of  men  within  the  Coast 
Defenses.  As  a  result  of  these  requirements,  the  personnel 
adjutants  were  chosen  from  those  men  who  had  considerable 
experience  in  handling  men  in  civil  life,  together  with  tech- 
nical knowledge,  when  possible. 

It  became  evident  that  some  centralized  authority  would 
necessarily  be  charged  with  securing  the  kinds  of  specialists 
needed  and  with  their  proper  distribution  to  the  various  Coast 
Defenses,  where  they  would  be  used  in  the  formation  of 
tactical  units.  Consequently,  two  officers  and  several  enlisted 
men  were  assigned  to  duty  at  Washington.  Each  coast  defense 
was  required  to  submit  semi-monthly  reports  showing  the 
number  and  classification  of  enlisted  men  in  the  coast  defense. 
Based  upon  these  reports  and  the  tables  of  occupational  needs 
for  units  to  be  formed  at  a  given  coast  defense,  it  became  pos- 


272 HISTORY  OF  PERSONNEL 

sible  to  requisition  for  the  exact  number  and  kind  of  men 
needed  at  that  Coast  Defense.  It  occasionally  was  possible 
to  transfer  men  from  various  Coast  Defenses  and  balance 
organizations  within  the  Coast  Artillery  without  the  necessity 
of  requisitioning  for  additional  specialists. 

Upon  the  completion  of  the  tenth  Personnel  School  at  Camp 
Meigs  in  September,  six  of  the  best  qualified  officers  were 
retained  in  Washington  and  detailed  to  prepare  Tables  of 
Occupational  Needs  for  the  Coast  Artillery.  These  six  officers 
carefully  investigated  the  duties  of  each  enlisted  man  called 
for  by  tables  under  which  Coast  Artillery  units  were  organ- 
ized. A  specification  was  prepared  for  each  job,  and  these 
personnel  specifications  were  then  assembled  into  book  form, 
including  therein  consolidated  tables  for  each  type  of  organ- 
ization. The  preliminary  manuscript  of  these  tables  of  occu- 
pational needs  proved  of  very  great  value  in  the  formation  of 
certain  units  during  the  two  or  three  weeks  prior  to  the  sign- 
ing of  the  Armistice.  The  completed  tables,  unfortunately, 
were  not  in  print  until  later. 

During  the  last  half  of  October  a  considerable  draft  in- 
crement was  received  at  the  Coast  Defenses  and  handled  in  a 
creditable  maner.  This  occurred  within  six  weeks  from  com- 
pletion of  the  Personnel  School  at  which  practically  all  the 
Coast  Artillery  personnel  adjutants  received  their  instructions. 

It  is  believed  that  the  Coast  Artillery  presented  about  as 
serious  difficulties  as  any  of  the  other  staff  corps  and  bureaus 
of  the  War  Department.  It  proved  possible,  however,  to  plan, 
select  and  instruct  men,  and  put  the  whole  system  in  opera- 
tion within  a  period  of  three  months.  Some  difficulties  still 
remained  at  the  signing  of  the  armistice,  but  current  work  was 
being  carried  on  in  a  very  satisfactory  manner  and  units  des- 
tined for  overseas  were  properly  balanced,  and  required  a 
minimum  of  training.  Possibly  the  greatest  difficulty  encoun- 
tered was  that  due  to  the  very  limited  number  of  specialists 
available,  and  the  necessity  of  using  semi-skilled  men  for  im- 
portant jobs  in  these  units. 


PERSONNEL  WORK  273 

Conclusion.  The  system  as  installed  in  the  Coast  Artillery 
provided  that  one  officer  in  Washington  had  at  all  times  an 
accurate  knowledge  of  the  number  and  trade  ability  of  men 
in  all  Coast  Defenses  in  the  United  States.  By  compiling 
this  information  on  master  lists,  requiring  very  little  clerical 
work,  it  was  possible  at  any  time  to  locate  men  of  specific 
ability  and  order  them  to  the  point  at  which  needed.  At  the 
same  time  in  each  Coast  Artillery  fort  or  defense  there  was 
a  qualified  office  force  which  handled  all  paper  work  incident 
to  enlisted  personnel  and  saw  to  it  that  men  were  assigned  in 
accordance  with  their  qualifications. 


CHAPTER  22 

PLANS   FOR   SEPARATION  OF   PERSONNEL 
WORK  AND  ADJUTANT'S  WORK 

We  have  now  seen  how  the  Personnel  Office  developed  from 
a  small  office  handling  only  the  qualification  cards  and  inter- 
ested primarily  in  the  assignment  and  transfer  of  enlisted 
men  until  it  became  the  largest  office  in  the  camp.  And  in 
that  office  were  prepared  most  of  the  papers  incident  to  a 
drafted  man's  enlistment  in  the  army,  including  insurance, 
allotments,  classification,  etc.  We  have  also  seen  that  this 
development  took  place  because  personnel  work  suffered  if 
all  this  was  not  done  efficiently  and,  as  it  was  not  well  done, 
took  it  over  in  order  that  the  strictly  personnel  work  would 
prosper.  The  transfer  of  the  larger  part  of  the  paper  work 
into  one  office  undoubtedly  did  strengthen  personnel  work  and 
made  for  it  many  friends. 

REASONS  FOR  SEPARATING  PERSONNEL  WORK 
FROM  ADJUTANTS'  WORK 

About  the  time,  however,  that  the  work  was  becoming  thor- 
oughly coordinated  and  standardized  the  leaders  in  personnel 
work  commenced  to  realize  that  the  duties  of  a  camp  personnel 
adjutant  were  too  much  for  one  officer.  It  is  true  that  a  num- 
ber of  the  personnel  adjutants  handled  the  whole  job  in  good 
shape,  but  there  were  other  officers  who  could  not  oversee  it 
all,  and  their  places  could  not  be  supplied  with  men  who 
could. 

The  work  was  also  so  complex  that  it  was  equally  difficult 
to  obtain  supervisors  who  could  oversee  all  the  activities  in 
an  office.  And  without  such  a  grasp  of  the  whole  work,  super- 
visors could  not  very  well  direct  changes  or  make  proper 

274 


PLANS  FOR  SEPARATION  275 

recommendations.  For  these  reasons  it  was  felt  that  the  work 
suffered  to  some  extent  compared  with  what  would  be  accom- 
plished if  the  officer  in  charge  was  responsible  for  fewer 
details. 

Another  reason  for  separating  personnel  work  from  the 
strictly  adjutants'  work  lay  in  the  organization  of  the  Adju- 
tant General's  Department.  Personnel  and  insurance  work 
was  under  the  direction  of  Colonels  A.  M.  Ferguson  and  D.  Y. 
Beckham  in  Room  528,  War  Department.  The  handling  of 
all  other  papers  was  directed  from  other  divisions  of  the 
Adjutant  General's  Department.  There  was  every  reason  for 
not  further  coordinating  the  work  of  these  offices.  In  con- 
sequence, the  natural  thing  was  to  separate  their  respective 
organizations  in  the  field. 

The  most  important  reason  for  effecting  a  separation  of 
the  two  types  of  work  was  the  transfer  of  personnel  work  to 
the  General  Staff.  General  Orders  No.  80  of  August  26,  1918, 
provided  that  "the  appointment,  promotion,  transfer,  and 
assignment  of  the  commissioned  personnel  of  all  branches  of 
the  Army"  should  be  a  duty  of  the  Operations  Division,  Gen- 
eral Staff.  In  order  to  carry  out  this  provision,  General 
Orders  No.  86,  September  18,  1918,  further  provided  that 
"there  is  established  the  Commissioned  Personnel  Branch, 
Operations  Division,  General  Staff,  which  will  be  formed  by 
consolidation  of  (a)  the  Commissioned  Personnel  Section,  Gen- 
eral Staff,  and  (b)  the  Committee  on  Classification  of  Per- 
sonnel of  the  Adjutant  General's  Office, " 

This  General  Order  created  an  anomalous  situation.  The 
Committee  was  now  in  the  General  Staff,  the  officers  that  car- 
ried on  personnel  work  in  the  camps  were  all  commissioned 
in  the  Adjutant  General's  Department,  and  most  of  their 
functions  had  to  do  with  paper  work  which  was  strictly  adju- 
tant's work. 


276  HISTORY  OF  PERSONNEL 

PLANS  FOR  SEPARATING  PERSONNEL  WORK 
FROM  ADJUTANTS'  WORK 

In  consequence,  a  movement  was  immediately  started  to 
establish  a  Central  Personnel  Division  of  the  Operations  Sec- 
tion, General  Staff,  and  to  include  all  strictly  personnel  work 
therein.  On  November  5th  a  memorandum  from  the  General 
Staff  was  directed  to  The  Adjutant  General  directing  that  a 
general  order  be  issued  on  the  subject,  as  follows: 

"The  Secretary  of  War  directs  that  the  following  general 
order  be  issued: 

1.  The  classification,  assignment  and  placement  of  per- 
sonnel in  the  Army  are  placed  under  the  supervision  of  the 
General  Staff.    These  functions  embrace  measures  necessary 
to  provide  for  the  utilization,  to  the  fullest  extent,  of  the 
man  power  of  the  nation  in  relation  both  to  the  military 
establishment  and  to  industry.     As  regards  the  Army,  they 
include   the    procurement   of   men    from   all   sources,   their 
classification  by  trades  and  occupations,  and  their  assign- 
ment and  placement  in  such  a  way  that  the  Army  will  obtain 
full  advantage  of  their  occupational  ability,  training  and 
experience.     They  include  matters  pertaining  to  the  placing 
of  men  according  to  their  abilities  and  their  reassignment 
or  transfer  to  positions  where  their  services  can  best  be 
utilized,  when  such  transfers  become  available.    As  regards 
industry,   these   functions    include   matters   concerning   the 
effect  of  the  withdrawal  of  large  numbers  of  men   from 
industrial  pursuits  and  their  retention  in,  or  return  to,  essen- 
tial war  industries. 

2.  Routine  administration,  and  record  and  account  keep- 
ing form  no  part  of  these  functions,  except  in  so  far  as  they 
pertain  to  the  collection  of  information,  statistics  and  data 
relating  to  them   and  the  records   and   reports   connected 
therewith. 

3.  Instructions  and  orders  to  carry  out    policies    and 
action   pertaining  to   classification,   assignment   and   place- 
ment, will  be  issued  as  heretofore  by  The  Adjutant  Gen- 
eral's Department. 

4.  In  camps  and  tactical  divisions,  and  in  other  places 
and  units  specially  authorized,  an  officer  designated  as  clas- 
sification officer  of  the  place  or  unit,  will  be  in  charge  of  the 


PLANS  FOR  SEPARATION  277 

functions  prescribed  in  Paragraph  1.  The  classification 
officer  will  be  assisted  by  such  other  officers  and  enlisted 
men  as  are  authorized  by  the  War  Department.  In  tactical 
divisions  the  classification  officer  will  be  an  assistant  of  the 
Chief  of  Staff  of  the  division;  in  camps  he  will  be  an  assist- 
ant of  the  executive  officer;  in  specially  authorized  places 
and  units  he  will  be  a  staff  officer  of  the  commander  of  the 
place  or  unit.  Classification  officers  will  be  designated  by 
the  War  Department  from  officers  selected  and  specially 
trained  for  this  duty.  In  places  and  units  not  provided 
with  classication  officers,  as  indicated  above,  the  duties  pre- 
scribed for  such  officers  will  be  under  the  charge  of  the 
Statistical  Adjutant,  or,  if  there  is  no  Statistical  Adjutant, 
of  the  Unit  Adjutant. 

5.  Classification    officers,   in   the   performance   of   their 
duties,  will,  under  the  direction  of  the  commander  of  the 
place  or  unit,  be  specifically  charged  with  the  following: 

(a)  Recommendations  pertaining  to  the  preparation, 
use  and  preservation  of  qualification  cards  of  officers. 

(b)  Classification,  qualification,  trade  testing,  assign- 
ment and  transfer  of  enlisted  men,  handling  of  requisi- 
tions for  enlisted  personnel  and  recommendations  for  the 
balancing  of  organizations  in  accordance  with  Tables  of 
Occupational  Needs  and  the  requirements  of  the  service. 

(c)  Preparation  of  special  and  periodical  reports  and 
returns  pertaining  to  the  functions  prescribed  herein,  and 
the    preparation,   use   and    preservation   of   qualification 
cards  for  enlisted  men. 

6.  The  duties  prescribed  in  G.  O.  No.  60,  War  Depart- 
ment, 1918,  which  are  not  herein  assigned  to  classification 
officers,  will  be  performed  by  the  Adjutant  Genral,  Adju- 
tant or  Statistical  Adjutant  as  directed  in  that  order.  Statis- 
tical adjutants  and  mobilization  camps  or  places  receiving 
newly  inducted  men.  will  have  supervision  over  the  receiving 
of  such  men,  and  are  charged  with  the  preparation  of  the 
initial  records  required  by  the  Adjutant  General's  Depart- 
ment for  record  or  file  at  the  War  Department  or  at  camp, 
division  or  other  unit  headquarters,  except  those  relating  to 
the  functions  transferred  by  this  order  to  the  General  Staff. 

Statistical  adjutants  are  also  charged  with  the  correspon- 
dence relating  to  induction  of  drafted  men. 


278 HISTORY  OF  PERSONNEL        

7.     The  officers  and  enlisted  men  necessary  to  perform 

the  duties   required   by   this   order  will   be  those   given    in 

Tables  of  Organization. 

The  necessary  changes  in  the  Tables  of  Organization  are 

in  course  of  preparation  and  will  soon  be  published. 

In  places  or  units  not  covered  by  Tables  of  Organization, 

the  necessary  force  will  be  that  already  authorized  or  such 

as  may  hereafter  be  authorized  by  instructions  from  the  War 

Department. 

This  order  was  not  issued  due  to  the  signing  of  the  armistice. 

The  order  would  have  resulted  in  so  reorganizing  the  Per- 
sonnel Office  as  in  large  measure  to  carry  on  the  functions  first 
assigned  it  in  the  National  Army  Camps  in  September,  1917. 
But  the  office  would  have  been  under  the  direction  of  the  Gen- 
eral Staff,  instead  of  the  Adjutant  General.  Details  as  to  the 
size  of  the  office  in  the  different  camps,  as  contemplated,  were: 

Cainp  Ports 
Without                                    of  Em- 
Camps  with  Depot    Tactical  Dept.     barka-  Recruit 
Depot  Brig-.    Brig.     Division  Hdqrs.       tion      Depots 

Major  or  Captain  111110 

Captain  or  First  Lt.  2  1  1  0  0  1 

First  I  A.  or  2nd  Lt.  100000 

Total  Comni. 

Rgt.  Sgt.  Mjr. 
Bn.  Sgt.  Mjr. 
Sergeants 
Corporals 
Pvts.  1st  Cl. 
Pvts. 

Total  F.nl. 

The  authorization  for  "Camp  with  Depot  Brigade"  includes 
the  following  officers  and  enlisted  men  of  the  Trade  Test 
Sections:  1  Captain  or  First  Lieutenant;  1  Regimental  Ser- 
geant Major,  2  Battalion  Sergeants  Major,  5  Sergeants,  2 
Corporals,  12  Privates  (first  class),  8  Privates. — Total  en- 
listed, 30. 


4 

2 

2 

1 

1 

1 

4 

2 

1 

1 

1 

0 

7 

2 

0 

0 

0 

0 

18 

2 

2 

1 

2 

0 

15 

2 

0 

0 

0 

0 

40 

2 

0 

0 

3 

0 

16 

2 

0 

0 

0 

0 

100 

12 

3 

2 

6 

0 

PLANS  FOR  SEPARA TION  279 

CONCLUSION 

Had  the  war  continued  several  months  more  the  following 
changes  would  undoubtedly  have  taken  place.  First,  all  per- 
sonnel work  would  have  been  centralized  in  a  Personnel  Branch 
of  the  Operations  Division,  General  Staff.  Commissioned  per- 
sonnel work  had  already  been  so  centralized.  Second,  strictly 
personnel  work  dealing  with  the  classification  and  assignment 
of  both  officers  and  enlisted  men  would  have  been  placed  under 
a  Classification  Officer  (a  new  title  for  the  old  Personnel  Offi- 
cer) who  would  be  an  assistant  to  the  Chief  of  Staff  of  a  divi- 
son,  to  the  Executive  Officer  of  a  camp,  or  a  staff  officer  re- 
porting to  the  commanding  officer  of  smaller  units.  All  other 
paper  work  incident  to  commissioned  or  enlisted  personnel 
work  would  be  concentrated  under  a  Statistical  Adjutant,  as 
assistant  to  the  unit  or  station  adjutant. 

This  plan  would  have  provided  a  unified  organization  by 
which  officers  and  enlisted  men  could  be  placed  according  to 
their  qualifications  and  transfers  easily  be  made  between  (a) 
units  within  a  camp  or  unit,  (b)  between  camps  and  (c)  be- 
tween the  several  staff  corps  or  departments  of  the  army. 
Little  had  been  accomplished  in  the  case  of  (c)  up  to  the 
signing  of  the  armistice,  although  there  were  many  cases  on 
record  when  skilled  men  had  been  found  in  organizations 
where  their  specialized  experience  could  not  be  utilized. 


SECTION  VI 
PLACEMENT 

The  proper  placement  of  men  is  dependent  upon 

(1)  a  careful  analysis  of  the  man's  qualifications, 

(2)  a  careful  study  of  the  job  to  be  performed,  and 

(3)  the  placing  of  the  right  man  in  the  right  place. 
The  first  two  factors  have  been  discussed  at  some 
length  in  Sections  III  and  IV.     The  third  is  the 
subject  of  this  Section. 

If  we  had  but  a  dozen  men  to  be  considered  and 
an  equal  number  of  jobs,  it  would  be  relatively  easy 
to  place  the  men  where  they  would  be  most  useful. 
But  when  several  thousand  men  are  so  to  be  dis- 
tributed it  becomes  necessary  to  handle  men,  as 
merchandise  is  handled,  and  ship  them  on  the 
basis  of  requisitions.  Record  of  the  transactions 
must  be  carefully  kept;  else  mistakes  and  confu- 
sions are  bound  to  arise. 

Chapter  23  presents  the  administrative  measures 
utilized  in  handling  requisitions  for  men.  In  the  fol- 
lowing chapter  the  further  phases  of  this  subject  as 
they  relate  specifically  to  the  organization  of  a 
military  unit  are  discussed.  And  in  Chapter  25  a 
corollary  to  this  is  taken  up;  i.  e.,  the  methods  em- 
ployed to  interest  officers  in  the  proper  placement 
of  men.  Two  special  phases  of  "placement"  are 
also  considered:  i.  e.,  methods  of  selecting  men  for 
officers'  training  schools  (Chapter  26)  and  the  use 
of  limited  service  men  (Chapter  27) , 


CHAPTER  23 


During  the  first  two  months  of  personnel  work,  very  few 
records  were  kept  of  the  placements  of  men.  Verbal  and 
written  requisitions  were  received  and  they  were  filled  as  soon 
as  possible.  If  they  could  not  be  filled  promptly,  because  of 
lack  of  men  of  the  desired  qualifications,  they  were  quite  likely 
to  be  forgotten  until  the  officer  concerned  renewed  his  request. 
Such  oversights  eventually  forced  a  better  bookkeeping  sys- 
tem. In  the  camps  with  capable  personnel  officers  there  finally 
developed  a  thoroughgoing  procedure.  Unfortunately,  in 
some  of  the  other  camps  sufficiently  good  systems  were  not 
developed  and  much  confusion  still  reigned  even  up  to  the 
signing  of  the  armistice.  This  was  one  phase  of  supervision 
of  personnel  work  which  was  not  emphasized  by  the  Com- 
mittee on  Classification  of  Personnel  until  about  October,  1918. 
Then  several  were  assigned  this  duty.  By  November  llth 
they  had  prepared  the  copy  for  Chapter  VII.  of  the  Personnel 
Manual  whch  gave  in  detail  just  how  all  records  should  be 
maintained.  The  installation  of  this  system  would  have  done 
much  toward  improving  personnel  work  in  the  camps  with 
weak  or  inexperienced  officers  and  it  would  have  effected  a 
standard  method  in  all  camps. 

LOCAL  REQUISITIONS 

The  Personnel  Adjutant  handled  requisitions  for  specially 
qualified  men  both  from  local  officers  within  the  camp  and 
from  the  War  Department.  The  handling  of  requisitions  from 

283 


284  HISTORY  OF  PERSONNEL 

the  former  will  be  considered  first  and  then  those  from  the 
War  Depatrment  later  on. 

Several  local  requisitions  are  given  here  to  illustrate  the 
kind  of  service  rendered  by  the  personnel  office.  In  the  early 
days,  a  fire  department  had  to  be  organized  at  each  canton- 
ment. Accordingly  upon  receipt  of  this  information  asking  for 
25  men  for  the  Fire  Department,  the  personnel  officer  selected, 
as  at'  Camp  Taylor,  seventeen  men  with  experience  in  fire 
departments  and  one  good  clerk  and  reported  their  names  and 
organizations  to  the  Chief  of  Staff.  A  note  at  the  bottom 
stated  that  they  were  all  the  qualified  men  in  camp  and  that 
the  remainder  could  probably  be  furnished  from  the  next 
draft  due  the  following  Friday.  Later  seven  more  men  were 
furnished. 

At  one  of  the  Flying  Fields  the  Colonel  came  into  the  per- 
sonnel office  one  morning  very  much  flustered  and  said  he  had 
lost  his  keys.  One  of  the  keys  opened  the  inner  compartment 
to  the  safe.  He  explained  that  he  had  become  so  much  upset 
at  the  affair  that  now  he  couldn't  even  remember  the  com- 
bination to  the  safe  and  after  working  at  it  for  some  time  had 
been  unable  to  open  it.  Could  the  personnel  officer  with  his 
much  talked  of  system  do  anything.  Turning  to  his  file,  the 
latter  said,  "Certainly."  In  a  minute  he  called  to  his  orderly 
and  requested  that  Privates  Smith  and  Jones  report  imme- 
diately. Private  Smith,  formerly  employed  by  a  safe  com- 
pany, quickly  opened  the  safe  by  listening  to  the  tumblers  and 
Jones,  a  good  locksmith,  soon  after  had  a  new  key.  Whereat 
the  Colonel  ejaculated,  "What  the —  — is  the  use  of  a  safe?" 

Not  only  were  the  qualification  cards  found  useful  in  the 
regular  camps  but  even  in  the  S.  A.  T.  C.  detachments  they 
proved  their  value  as  is  shown  in  the  following  incident. 
During  the  influenza  epidemic  it  was  necessary  to  provide  for 
a  temporary  hospital.  By  the  usre  of  the  cards  a  group  of 
students  was  selected  and  organized  to  construct  a  hospital, 
and  within  forty-two  and  a  half  hours  from  the  time  the  lum- 
ber was  delivered,  the  building  was  completed  and  patients 


FILLING  REQUISITIONS  285 

were  installed  therein  under  the  supervision  of  the  medical 
officer  and  nurses.  Prior  to  the  erection  of  this  hospital  accom- 
modations were  provided  for  only  ten  cases.  After  its  erection 
a  peak-load  of  ninety-two  cases  was  handled  without  a  single 
loss.  During  the  construction  of  the  hospital  it  was  neces- 
sary to  have  day  and  night  shifts  at  work  and  to  serve  six 
messes  every  twenty-four  hours.  A  complete  crew  of  cooks 
was  secured  through  the  use  of  the  cards,  and  every  meal  was 
served  on  time.  Under  normal  conditions  no  men  of  such  a 
unit  serve  as  cooks.  When  the  medical  officer  needed  addi- 
tional nurses  he  was  given  five  men  with  some  experience  and 
sufficient  qualifications  to  carry  out  his  orders  properly. 

In  filling  these  requisitions,  the  man's  occupational  skill  was 
primarily  considered.  If  the  company  commander  had 
reported  him  as  "Preferred",  this  was  taken  into  account  and 
he  was  not  recommended  for  transfer,  if  any  other  could  be 
substituted.  The  man's  physical  qualifications  as  to  height 
and  weight  were  frequently  noted,  also  his  intelligence  and 
primary  preference.  When  there  was  time  all  these  were 
given  due  consideration,  but  more  often  there  was  very  little 
time,  and  the  requisition  was  filled  mainly  on  the  basis  of 
occupational  skill.  If  the  war  had  continued  another  six 
months  and  personnel  work  had  been  separated  from  adju- 
tant's work,  a  very  noticeable  increase  in  proficiency  of  place- 
ment would  have  taken  place.  This  is  so  stated  here  because 
many  personnel  officers  realized  the  situation  and  were  en- 
deavoring to  correct  it. 


WAR  DEPARTMENT  REQUISITIONS 

Reports  on  Occupational  Classfications  of  Drafted  Men. 
The  personnel  organization  was  not  planned  for  the  purpose 
of  transferring  specialists  from  camp  to  camp  or  for  the  pur- 
pose of  supplying  men  for  the  staff  corps.  It  was  planned  to 
have  local  clearing  offices  in  each  camp  for  meeting  the  supply 
and  demand  in  that  camp.  But  almost  immediately  the  need 
arose  to  supply  staff  corps  units  with  skilled  men  and  a  little 


286  HISTORY  OF  PERSONNEL 

later  for  transferring  men  from  camp  to  camp.  Requisitions 
for  5,000  skilled  men  were  issued  in  October,  1917,  to  National 
Army  Camps  and  they  increased  rapidly  until  the  close  of  the 
war. 

Not  expecting  requisitions,  when  they  did  come,  they  found 
the  personnel  organization  without  any  information  as  to 
where  such  specialists  could  be  found.  Fortunately,  however, 
the  requisitions  called  for  only  a  few  men  at  a  time  and  con- 
sequently most  of  them  could  be  filled  by  the  camps  which 
were  called  upon  to  furnish  them.  The  next  step  was  to  call 
upon  the  camps  for  reports,  known  as  Periodic  Reports 
(CCP-9),  as  to  the  total  number  of  men,  green  (skilled)  and 
orange  tabbed  (partly  skilled)  under  each  occupational  head- 
ing, showing  number  of  machinists,  blacksmiths,  carpen- 
ters, etc.  Here  a  count  of  tabs,  not  men,  was  called  for.  This 
was  done  for  two  reasons,  first,  it  was  easier  for  the  personnel 
officer  to  count  all  the  tabs  than  to  evaluate  each  card  and 
report  the  man  under  his  main  usefulness.  And,  second,  it 
was  thought  that  it  would  enable  the  central  office  to  determine 
how  men  could  best  be  used  instead  of  leaving  this  matter  to 
the  local  officers.  The  plan  worked  all  right  as  long  as  there 
was  an  ample  surplus  of  specialists  over  the  demand.  But  as 
soon  as  supply  and  demand  commenced  to  approximate  each 
other,  it  became  evident  that  only  a  count  of  men  would  meet 
the  needs.  For  if  a  man  was  tabbed  green  as  blacksmith  and 
machinist  and  orange  tabbed  as  draftsman,  then  when  a  black- 
smith was  ordered  transferred,  the  camp  also  transferred  a 
machinist  and  apprentice  draftsman.  But  the  central  office  had 
no  way  of  knowing  this  additional  fact. 

The  Periodic  Report  of  February  1st,  1918,  edition  shows 
this  change  from  counting  tabs  to  counting  men  very  clearly. 
For  it  calls  for  a  count  of  green  tabbed  men,  and  then  for  a 
count  of  all  black  (second  best  journeymen)  and  orange  tab- 
bed men  (apprentices)  by  tabs.  From  such  a  report  one 
knew  definitely  how  many  journeymen  could  be  transferred 
out  of  camp.  One  also  knew  how  many  substitutions  were 


FILLING  REQUISITIONS 287 

possible.  In  terms  of  the  illustration  given  above,  one  knew 
that  the  blacksmith  could  be  transferred,  and  also  that  there 
was  a  machinist  and  apprentice  draftsman  in  that  camp  and 
also  that  these  two  had  been  counted  somewhere  else  already. 
If,  then,  this  machinist  was  requisitioned,  the  figures  in  the 
main  (green)  column  would  have  to  be  lowered  by  one  man. 
This  system  was  maintained  until  March  27th  when  the  new 
form,  entitled  "Special  Report  of  Occupational  Classification" 
(CCP-15)  was  issued  in  lieu  of  Periodic  Reports.  This  report 
called  for  a  count  of  men,  not  tabs.  If  a  man  was  given  more 
than  one  tab  than  he  was  to  be  reported  under,  that  tab  which 
seemed  to  the  local  officer  as  his  main  usefulness  to  the  army 
was  used. 

Here  arose  a  new  problem.  If  the  local  officer  was  to  judge 
at  what  occupational  specialty  the  man  was  to  be  employed, 
how  was  he  to  know  which  of  two  or  more  possibilities  to 
favor.  This  was  answered  in  two  ways. 

Through  visits  of  supervisors,  properly  coached,  and  the 
issuing  of  special  letters  local  personnel  officers  were  cautioned 
to  study  the  requisitions  received  each  month  and  to  note  which 
occupations  were  most  frequently  called  for  and  to  favor 
them  in  classifying  men.  Thus,  if  blacksmiths  were  more  fre- 
quently called  for  than  machinists,  per  number  received  in 
the  draft,  then  whenever  a  man  qualified  under  both  groups 
he  was  to  be  reported  as  a  blacksmith  and  not  a  machinist. 
In  addition  to  this  method  of  acquainting  local  officers  as  to 
how  to  classify  men,  the  central  office  commenced  with  the 
March  27th  report  to  designate  certain  occupations  as  of 
greater  importance  than  others ; — "Greater"  in  the  sense  of 
rarer  in  terms  of  supply  and  demand.  For  example,  in  this 
report  there  are  two  parts.  If  a  man  can  be  classified  under 
one  of  the  occupations  in  the  first  part  he  is  to  be  placed  there 
in  preference  to  occupations  listed  in  the  second  part.  If  he, 
however,  falls  under  two  occupations  in  part  one,  then  the 
judgment  of  the  local  officer  had  to  be  employed  as  to  which 
one  of  the  two  to  list  him  under. 


288 HISTORY  OF  PERSONNEL 

In  June  a  long  list  of  preferred  occupations  was  issued  as  a 
guide  to  the  local  officer  in  determining  how  to  classify  men 
under  their  main  occupation.  The  next  month  commenced 
the  system  continued  until  the  signing  of  the  armistice  of 
listing  all  the  occupations  on  which  reports  were  needed  but 
to  star  those  of  primary  importance.  Thus,  automatic  screw 
machine  operators  and  bakery  machinists  were  starred  be- 
cause of  excessive  demands  as  compared  with  the  supply,  while 
machine  assemblers  and  bench  hands  were  not  starred.  Com- 
mencing with  the  October  report  the  subdivision  of  occupa- 
tions as  to  their  importance  to  the  army  was  extended.  In 
addition  to  starred  occupations  there  appeared  occupa- 
tions followed  by  a  star  and  the  figure  3  (*3).  In  such 
cases  Form  CCP-3,  letter  to  former  employer,  was  to 
be  used.  Many  of  these  men  would  be  furloughed  to  industry, 
if  their  records  were  satisfactory,  or  used  in  special  units  in 
the  army.  Besides  this  new  group  there  also  appeared  other 
occupations  marked  "R  R."  Such  men  were  to  be  transferred 
immediately  to  the  Engineer  Corps,  Fort  Benjamin  Harrison. 

Another  development  in  these  Reports  on  Occupational 
Classification  needs  to  be  noted.  Up  to  the  time  of  the  March 
report,  men  were  reported  under  the  main  group  heading, 
such  as,  machinists,  blacksmiths,  carpenters,  etc.  By  that 
time  it  became  apparent  that  the  differences  between  carpen- 
ter, e.g.,  as  to  whether  they  were  house,  bridge  or  ship  car- 
penters was  more  important  than  as  to  whether  they  were 
journeymen  or  apprentice  carpenters,  grouping  all  carpen- 
ters together.  In  consequence,  with  that  report  men  were 
to  be  reported  in  terms  of  the  sub-divisions  of  the  main  groups 
listed  in  CCP-4.  This  report  called  for  men  to  be  reported 
under  234  different  headings.  The  number  of  these  headings 
gradually  increased  so  that  in  the  last  report  used  before 
the  armistice  469  headings  were  recognized. 

War  Department  Requisitions.  While  the  above  refine- 
ments in  reporting  men  to  Washington  were  being  developed 
there  was  a  corresponding  increase  in  the  definiteness  and 


FILLING  REQUISITIONS  289 

completeness  of  the  requisitions  transmitted  to  the  camps. 
Gradually  better  and  better  forms  were  developed  upon  which 
the  Staff  Corps  had  to  render  their  requisitions.  And  at  the 
same  time  experience  showed  the  best  method  of  preparing 
telegrams  or  letters  whereby  requisitions  could  be  transmitted 
to  the  camps.  Definite  forms  were  developed  and  each  requi- 
sition written  according  to  the  appropriate  form. 

The  following  letter  addressed  to  the  Personnel  Officer, 
Camp  Upton,  on  July  llth,  1918,  illustrates  how  well  many 
of  these  War  Department  requisitions  were  handled. 

"1.  Please  permit  me  to  express  my  appreciation  of  the 
prompt  and  efficient  manner  in  which  you  personally  and  your 
organization  arranged  for  the  selection  of  42  experienced 
railroad  men  for  the  operation  of  the  Terminal  here,  in  accord- 
ance with  authority  from  Washington,  D.  C. 

"2.  In  accordance  with  instructions  from  the  Storage  Officer 
of  the  Port  of  New  York,  I  went  to  Camp  Upton  on  June  17th 
to  select  42  men  experienced  in  railroad  operation.  Cards 
for  60  men  were  given  me.  After  analyzing  the  cards  and 
interviewing  the  men,  I  secured  18  men.  You  informed  me 
that  a  new  draft  would  be  in  soon  after  June  1st.  After 
making  proper  arrangement  I  returned  to  Camp  Upton  on 
July  8th  to  select  the  remaining  24  men.  I  found  your  organi- 
zation had  analyzed  the  possibilities  very  carefully  and  had 
selected  36  cards.  I  personally  examined  all  of  the  36  men, 
selecting  24  of  them  I  deemed  best  qualified  for  our  service. 
I  feel  sure  the  other  12  could  have  been  used  if  we  had  needed 
that  many. 

"3.  This  letter  is  written  as  I  did  not  have  the  opportunity 
of  seeing  you  personally  before  leaving  Camp  Upton  on  July 
8th,  and  I  want  you  to  know  we  appreciate  very  much  the 
manner  in  which  you  handled  the  whole  matter." 

Transfer  Reports  and  Transfer  Lists.  In  order  that  Wash- 
ington could  keep  track  as  to  when  requisitions  were  filled 
and  to  what  extent  they  were  filled  a  Transfer  Report  blank 
(CCP-8)  was  issued.  The  personnel  officer  reported  each 
day  on  this  form  the  requisition  number  filled,  the  date  of 
shipment,  the  number  of  men  per  occupation  and  whether 


290  HISTORY  OF  PERSONNEL 

journeymen  or  apprentice;  also  whether  in  case  the  requisition 
was  not  completely  filled,  it  could  be  or  not,  and  if  so,  when. 

Soon  after  requisitions  commenced  to  be  filled,  complaints 
began  coming  in  to  Washington  that  the  specialists  called  for 
had  not  been  received  and  that  men  not  needed  had  been  re- 
ceived in  their  place.  This  often  was  true:  the  system  did 
not  work  perfectly,  particularly  in  the  early  days.  But  often, 
after  investigation  it  was  found  that  the  trouble  lay  in  the 
receiving  officer.  For  example,  a  man  had  been  a  telegraph 
operator  ten  years,  during  the  last  four  years  he  had  studied 
law  at  night  and  then  had  commenced  the  practise  of  law. 
This  man  quite  properly  was  transferred  as  a  telegraph  oper- 
ator. But  he  didn't  know  why  he  was  shipped  and  on  being 
asked  by  the  Signal  Corps  receiving  officer  what  his  occu- 
pation was,  he  said,  "Lawyer."  Hence  the  complaint  that  a 
telegraph  operator  was  missing  and  a  lawyer  had  been  re- 
ceived who  was  not  wanted.  In  other  words,  poor  interview- 
ing by  the  receiving  officer  could  nullify  to  a  considerable 
extent  the  efficiency  of  careful  personnel  work  elsewhere. 
And  there  was  a  great  deal  of  such  hasty  interviewing  in  the 
early  days,  because  all  were  rushing  at  top  speed.  In  con- 
sequence, Transfer  Lists  (CCP-11)  to  serve  as  a  bill  of  lad- 
ing were  prepared  by  the  personnel  officer  whenever  he 
shipped  men.  On  them  were  listed  all  the  enlisted  men  in- 
cluded in  the  transfer  with  their  army  serial  number,  their 
occupation  and  their  degree  of  skill.  A  receiving  officer  could 
then  look  at  the  list  and  know  exactly  what  he  was  supposed 
to  receive. 

The  transfer  list  also  served  another  very  good  purpose. 
It  forced  the  personnel  officer  to  record  in  detail  what  he  had 
shipped  and  so  made  it  impossible  for  him  to  cover  up  any 
transfers  which  were  not  according  to  specifications.  Often 
this  served  as  a  club  for  him  to  use  over  higher  ranking 
officers  who  did  not  want  him  to  ship  men  out  of  certain  units 
in  the  camp  from  which  only  such  specialists  could  be  ob- 
tained but  nevertheless  knew  that  the  requisition  had  to  be 


FILLING  REQUISITIONS  291 

filled.  The  fact  that  a  report  in  detail  had  to  be  rendered  to 
the  man  receiving  the  men  helped  force  full  compliance  with 
orders. 

Camp  Procedure,  The  details  of  the  procedure  followed 
in  the  camp  in  filling  requisitions  are  given  in  Chapter  VII 
of  Vol.  II.  In  that  chapter,  there  are  also  illustrated  the 
forms  used  in  keeping  track  of  each  requisition. 


CHAPTER  24 
BALANCING  A  UNIT 

By  "balancing  a  unit"  is  meant  supplying  it  with  just  the 
men  it  needs  in  accordance  with  Tables  of  Personnel  Speci- 
fications so  that  it  will  function  most  efficiently.  Three  con- 
siderations must  be  taken  into  account.  The  unit  must  be 
supplied  with  men  of  those  types  of  occupational  experience 
which  will  be  employed  in  the  unit.  Otherwise  time  will  be 
required  to  train  them  in  occupational  work  in  addition  to 
purely  military  duties.  The  unit  must,  second,  have  assigned 
to  it  sufficient  men  of  leadership  qualifications  so  that  from 
the  group  the  company  commander  may  select  his  non-com- 
missioned officers,  and  third,  the  unit  must  be  given  its  pro 
rata  share  of  superior,  average  and  inferior  men  to  fill  its 
quota  of  "unclassified"  men.  In  other  words,  an  excess  of 
poor  men  should  not  be  placed  in  any  organization. 

If  the  personnel  adjutant  is  called  upon  to  balance  a  unit 
at  the  time  men  are  to  be  transferred  into  it  then  his  task  is 
reasonably  simple;  for  he  needs  only  to  select  men  needed  in 
the  organization  and  have  them  transferred.  But  if  the  or- 
ganization already  has  a  large  number  of  men  in  it  and  then 
he  is  called  upon  to  balance  the  unit  he  has  a  much  more  diffi- 
cult duty.  He  must  first  of  all  make  an  inventory  of  the 
men  in  the  unit.  Those  specialists  not  needed  in  the  unit 
must  be  transferred  to  some  unit  where  they  are  needed,  and 
he  must  secure  specialists  from  some  other  place  to  fill  up  the 
unit  with  what  is  needed  there.  Moving  men  already  "an- 
chored" in  a  unit  requires  great  tact  because  in  the  majority 
of  cases  both  men  and  officers  resent  such  changes. 

292 


BALANCING  A  UNIT  293 

USE  OF  TABLES  OF  OCCUPATIONAL  NEEDS 

The  use  of  Tables  of  Occupational  Needs  and  Personnel 
Specifications  in  balancing  units  has  already  been  discussed 
in  Chapter  1-1  at  considerable  length.  A  word  or  two  at  this 
point  will  refresh  the  reafltr's  memory  of  the  whole  situation. 

From  September  until  March  the  personnel  officer  had  no 
other  guide  in  balancing  units  than  Chart  B.  This  chart 
simply  stated  the  total  number  of  tradesmen  needed  in  each 
major  unit  of  a  combat  division.  There  were  no  figures  as 
to  how  the  tradesmen  within  an  infantry  regiment,  for  ex- 
ample, were  to  be  distributed  among  its  companies.  In  con- 
sequence, the  personnel  officer  attempted  to  supply  each  regi- 
ment, separate  battalion,  etc.,  with  the  totals  specified  in 
Chart  B. 

With  the  appearance  of  the  Tables  of  Occupational  Needs 
the  whole  scope  of  the  work  broadened.  The  personnel  adju- 
tant was  then  supplied  with  information  as  to  how  men 
should  be  distributed  not  only  between  the  major  units  of  a 
division  but  also  between  their  sub-divisions,  i.e.,  companies  or 
batteries. 

The  Personnel  Specifications  which  appeared  actually  after 
November  llth  would  have  still  further  broadened  personnel 
work  as  they  would  have  enabled  the  personnel  adjutant  to 
select  men  specifically  for  definite  duties  within  the  company. 
This  does  not  mean  that  the  personnel  adjutant  would  have 
actually  so  assigned  them  but  that  he  would  have  seen  to  it 
that  the  company  commander  was  supplied  with  the  needed 
men  in  terms  of  the  individual  duties  to  be  performed  by 
that  company. 

BALANCING  A  NEW  UNIT 

After  the  drafted  men  have  been  interviewed  and  their 
qualification  cards  classified  they  are  assigned  in  accordance 
with  their  qualifications  and  the  specifications  in  the  tables 
of  occupational  needs.  All  this  was  comparatively  easily 
carried  out  when  the  men  were  first  assigned  to  the  depot 


294  HISTORY  OF  PERSONNEL 

brigade  and  afterwards  transferred  to  their  permanent  unit. 
During  the  first  few  months,  however,  selective-service  men 
were  assigned  on  a  geographical  schedule  to  units  both  in 
the  combat  division  and  depot  brigade.  As  this  plan  did  not 
consider  the  man's  individual  fitness  at  all,  many  men  were 
misplaced  necessitating  a  re-assignment  later,  or  else  their 
greatest  value  was  not  utilized.  Such  re-assignments,  how- 
ever, caused  endless  trouble,  as  once  a  man  "takes  root"  in  a 
company,  ordinarily  neither  he  nor  his  officers  want  to  have 
him  moved.  Gradually,  the  geographical  assignments  fell  into 
disuse  and  more  and  more  men  were  originally  assigned  to  the 
depot  brigades  where  they  were  held  until  needed.  By  the 
middle  of  1918  the  new  plan  of  using  depot  brigades  as 
reservoirs  was  operative  throughout  the  camps  in  this  country. 
A  Typical  Order  Authorizing  the  Balancing  of  a  Unit. 
The  following  telegram  gives  a  clear  idea  as  to  just  what 
kind  of  orders  were  issued  concerning  requisitions  for  en- 
listed men  and  for  the  balancing  of  two  infantry  brigades.  It 
was  dated,  July  20th,  1918. 

"After  all  requisitions  of  date  previous  to  July  twenty-third, 
on  June  draft  increment  your  Depot  Brigade  have  been  filled 
you  will  from  the  remainder  unassigned  in  your  Depot  Bri- 
gade complete  authorized  strength  of  all  organizations  at  your 
Camp  of  Nineteenth  and  Twentieth  Infantry  Brigades.  If 
additional  men  are  required  you  are  authorized  to  transfer 
number  needed  from  those  to  be  received  in  your  Camp  about 
twenty-second  instant  of  the  July  Draft  Increment.  You 
will  transfer  under  above  authority  only  such  classified  men 
as  are  called  for  by  tables  of  occupational  needs  of  above 
organizations  (see  form  CCP  —  Four  Hundred  Fifty) 
or  logical  substitutes  therefore.  You  will  attach  to  your 
occupational  report  Form  CCP-15  of  July  draft  increment 
previously  ordered  a  statement  showing  number  and  classifica- 
tion of  those  transferred,  also  show  same  data  for  men  of 
previous  drafts  transferred  under  this  authority.  You  will 
use  especial  care  to  fill  occupational  needs  of  these  organiza- 
tions with  men  of  qualifications  specifically  called  for. 

McCain." 


BALANCING  A  UNIT  295 

Method  Followed  in  Balancing  a  Unit.  The  procedure  for 
balancing  units  such  as  referred  to  in  the  above  telegram  is 
well  described  in  the  following  official  report,  dated  October 
22,  1918. 

"2.  Our  Occupational  Chart  in  this  office  is  8'x8';  and 
shows  all  units  in  the  division,  all  occupations  needed  in  the 
division,  the  number  of  specialists  each  unit  is  authorized  to 
have,  what  each  has  and  what  each  needs.  The  authorized 
number  of  specialists  are  painted  on  the  board,  yellow  being 
used  for  the  main  group,  blue  for  the  less  essential.  Chalk 
is  used  for  the  second  and  third  columns  so  that  they  may 
be  readily  changed.  Each  man  on  his  CCP — 1  in  the  files  is 
given  a  vocational  assignment  and  a  ledger  system  is  kept, 
debiting  and  crediting  each  organization  as  the  men  are 
moved  out  or  in.  This  is  posted  on  the  large  board  each 
evening. 

"3.  To  facilitate  the  proper  placing  of  men  within  the 
regiments,  each  Regimental  Personnel  Adjutant  has  a  board 
showing  by  companies  what  specialists  each  is  authorized, 
has,  and  needs.  The  regiments  check  their  boards  against 
our  board  weekly  so  that  they  will  correspond. 

"4.  To  carry  the  board  one  step  further,  each  headquarters 
company  has  a  small  board  showing  the  different  sections  and 
just  what  specific  duty  each  specialist  is  performing. 

"5.  This  system  of  vocational  charts  insures  this  office  that 
when  a  specialist  is  sent  to  an  organization  he  will  be  used 
in  his  proper  line  of  work.  Before  being  transferred  each 
man  is  trade  tested  and  only  experienced  men  are  taken  from 
old  units.  Once  a  man  has  been  found  qualified  and  efficient 
in  his  vocation,  then  his  vocational  assignment  appears  as  part 
of  his  name,  the  same  as  his  army  serial  number.  Upon  re- 
ceipt of  an  order  the  Regimental  Personnel  Adjutant  knows 
immediately  what  the  man  is  to  be  used  as  and  places  him 
accordingly." 

Chapter  IX  of  Volume  II  goes  into  still  greater  detail  as  to 
procedure  and  gives  the  operating  instruction  furnished  per- 
sonnel adjutants  covering  the  subject. 

Use  of  Psychological  Intelligence  Ratings.  The  report  re- 
ferred to  above  does  not  mention  intelligence  ratings.  This 
was  an  oversight  as  they  were  utilized  to  advantage  in  that 
camp. 


296 


HISTORY  OF  PERSONNEL 


In  the  early  days  it  was  found  that  units  varied  enormously 
in  the  percentage  of  each  of  the  different  grades  of  intelli- 
gence possessed  by  the  enlisted  men,  (i.e.,  A,  B,  C-J-,  C,  C — 
and  D)  some  companies  had  a  high  percentage  of  A  and  B 
men — good  officer  and  non-com,  material ;  others  had  prac- 
tically none.  In  the  same  way,  some  companies,  had  a  large 
proportion  of  D  men  and  some  had  practically  none.  The 
following  chart  presents  this  fact  very  clearly. 


11 

It 

1 

hi 

1 

7 

hi 

RATED 


COMPAMYA  BCDEFCH  IKL 


1 

| 

' 

1 

1 

II 

ILLITERAT] 

[ 

OR 

4      14 

FOREIGN 

J 

5 

M 

2 

! 

t 

"PT«      1  9 

Inequality  in   Terms   of   Intelligence   of  Companies  in   an   Infantry 
Regiment,  Due  to  the  Men  Being  Assigned  on  Geographical  Basis 


BALANCING  A  UNIT 297 

The  colonel  of  this  regiment  naturally  expected  the  same 
results  from  all  of  his  company  commanders.  But  that  was 
an  impossibility.  Tor  Company  E  had  29%  of  its  men  of 
high  intelligence  and  only  9%  of  low  intelligence  as  con- 
trasted with  Company  M  with  8%  of  high  intelligence  and 
42%  of  low  intelligence. 

The  procedure  followed  by  personnel  adjutants  in  order  to 
make  use  of  intelligence  tests  was  first  of  all  to  assign  men 
on  the  basis  of  their  occupational  experience.  When  that 
was  done,  the  remainder  of  the  men  were  assigned  in  terms 
of  their  intelligence  ratings  so  that  each  company  would  re- 
ceive its  pro  rata  share  of  superior  men,  average  men,  and 
inferior  men.  This  resulted  in  making  each  company  prac- 
tically alike  as  far  as  its  ability  for  training  was  concerned 
and  gave  to  each  company  commander  equal  opportunity  to 
warrant  good  men.  For  example,  if  such  balancing  of  intelli- 
gence had  been  carried  out  for  the  above  regiment,  each  com- 
pany would  have  had  12%  of  A  and  B  men  and  27%  of  illiter- 
ates and  foreigners,  with  the  exception  of  the  headquarters 
company  which  would  have  been  assigned  a  large  proportion 
of  good  men.  Probably  a  considerable  number  of  the  poorer 
men  would  never  have  been  assigned  the  regiment  but  re- 
served for  labor  units. 

Balancing  in  Terms  of  Supply  and  Demand.  So  far  the 
subject  of  balancing  has  been  discussed  on  the  supposition 
that  the  supply  of  specialists  was  equal  to  the  demand. 
Actually,  this  situation  was  the  exception  to  the  rule.  Letter 
of  March  29,  1918  from  The  Adjutant  General  states  the 
situation  at  that  time. 

"From:         The  Adjutant  General  of  the  Army. 
To:  Commanding  General  of  Divisions. 

Subject:     Apportionment  of  Available  Skilled  Personnel. 

1.  The  accompanying  Tables  of  Occupational  Needs  of 
Units  in  an  Infantry  Division  (Combat)  show  (a)  the  per- 
sonnel provided  for  in  the  Tables  of  Organization;  and  (b) 


298  HISTORY  OF  PERSONNEL 

the  trades  or  occupations  most  apt  to  qualify  a  man  for  the 
duties  indicated. 

2.  A  comparison  of  these  tables  with  the'data  in  your  Divi- 
sion Personnel  Office  will  show  the  extent  to  which  the  avail- 
able skilled  men  of  your  division  have  been  apportioned  among 
the  various  companies   and  batteries  and  trains  where  their 
abilities  are  most  needed. 

3.  Where  such  an  analysis  reveals  serious  shortages,  three 
means  of  remedy  are  suggested: 

(a)  Transfer  from  unit  to  unit,  to  effect  a  well-balanced 
organization. 

(b)  Assignment  of  new  arrivals,  in  filling  up  skeleton- 
ized units,  only  after  careful  determination  of  their  quali- 
fications. 

(c)  Special  training  within  the  division  for  the  develop- 
ment of  needed  motor  mechanics,  topographers,   farriers, 
telegraphers  and  other  specialists. 

At  a  later  date  it  may  be  possible  to  honor  requisitions 
from  divisions  for  specialists  of  various  kinds,  to  fill  them 
to  authorized  strength.  At  present  the  supply  of  certain 
much  needed  specialists  is  inadequate  even  for  the  completion 
of  units  soon  to  join  the  Expeditionary  Forces.  Consequently, 
in  order  to  meet  demands  for  skilled  personnel,  recourse  must 
be  had  for  the  present  to  specialized  training  within  your 
own  organization,  and  to  the  proper  distribution  of  skill 
already  available." 

Balancing  was  then  a  matter  of  compromising  between  what 
was  specified  in  the  Tables  of  Occupational  Needs  and  what 
was  available.  Because  of  this  the  personnel  adjutant  was 
required  to  use  great  judgment  so  as  to  place  his  small  stock 
of  specialists  to  the  greatest  advantage,  and  wisely  to  make 
use  of  all  possible  substitutes. 

In  some  cases  an  organization  could  not  possibly  be  sup- 
plied with  its  necessary  share  of  specialists,  and  sometimes  a 
requisition  for  the  needed  men  was  honored  by  the  War 
Department  notwithstanding  the  letter  of  March  29th.  One 
example  of  this  is  reported  by  the  commanding  officer  of  an 
ammunition  train  in  a  letter  from  France  addressed  to  the 
personnel  supervisor  that  engineered  the  transfer. 


BALANCING  A  UNIT  299 

"Just  a  few  lines  in  the  deuce  of  a  hurry  to  express  my 
sincere  thanks  to  you  for  your  good  offices  with  regard  to  the 
personnel  of  my  Motor  Battalion. 

"The  men  did  not  reach  us  until  after  our  arrival  here,  but 
when  they  did  come,  it  did  not  take  me  long  to  become  con- 
vinced that  you  had  made  good  your  promise  in  fine  shape, 
and  believe  me,  I  am  grateful. 

"This  is  a  country  where  you  have  got  to  deliver  the  goods. 
Reasons  for  failure  and  explanations,  however  valid,  are 
next  door  to  useless.  They  figure,  and  very  necessarily,  that 
you  should  have  put  it  over  somehow. 

"You  can  judge  then  what  these  specialists  mean  to  me. 
With  the  outfit  I  have  now,  I  miss  my  guess  if  I  shall  not 
soon  have  the  fastest  team  of  its  kind  in.  France.  (I  know 
that  sounds  big  but  I  mean  it  literally.) 

"If  I 'make  it  home  after  the  war,  I  shall  drop  in  on  you 
in  Washington  and  give  you  all  the  dope  on  the  whole  outfit 
— you  deserve  it  and  it  will  be  a  pleasure  to  me.  In  the 
meantime  I  want  to  say  again  that  I  surely  do  appreciate 
what  you  have  done  for  me  and  mine." 

Use  of  Regimental  Personnel  Adjutants.  Because  the  sup- 
ply of  men  available  for  transfer  was  practically  never  equal 
to  the  number  required  in  units  authorized  to  be  formed, 
units  were  filled  from  two  or  more  large  transfers.  Some- 
times these  transfers  would  be  a  month  apart,  so  that  by  the 
time  the  second  was  ready  to  be  made  the  first  lot  of  men 
had  been  pretty  well  placed  in  their  units.  This  resulted 
in  many  a  man  assigned  as  an  occupational  specialist  being 
used  for  some  other  purpose  by  the  company  commander. 
For  example,  a  cook  may  have  been  made  into  a  sergeant, 
or  an  unclassified  man  made  into  a  cook.  It  was  consequently 
very  desirable  for  the  division  personnel  adjutant  to  be  ac- 
quainted with  these  changes  in  order  to  make  the  new  assign- 
ments in  terms  of  what  the  companies  actually  needed.  In 
the  early  days  this  was  accomplished  by  calling  on  organiza- 
tion commanders  to  render  requisitions  for  the  men  they 
needed.  An  example  of  such  a  requisition  is  shown  in  chap- 
ter 25.  The  personnel  adjutant  compared  these  requisitions 
with  his  tally  of  what  should  be  needed  and  if  the  two  agreed 


300  HISTORY  OF  PERSONNEL 

fairly  well  would  work  from  the  requisition  on  the  ground 
that  each  officer  had  special  ways  of  accomplishing  the  same 
end  and  that  it  was  better  to  supply  him  with  exactly  what 
he  wanted,  even  if  it  was  not  exactly  the  best,  than  to  give 
him  the  ideal  selection  and  not  satisfy  his  desires.  If  the  requi- 
sition and  the  tally  did  not  agree  a  conference  was  held 
resulting  in  a  compromise. 

On  April  29,  1918  personnel  officers  were  authorized  for 
each  regiment,  separate  battalion  or  similar  unit,  (G.  O. 
No.  42,  1918).  His  primary  function  was  to  handle  the 
pay  rolls.  But  the  General  Order  stated  that  he  "will  have 
charge  of  all  matters  relating  to  the  enlisted  personnel  of  the 
command,  except  instruction,  training,  discipline,  equipment, 
supply  and  sanitation."  And  this  was  interpreted  to  mean 
that  he  should  have  charge  of  the  balancing  of  his  own  units. 
Division  and  camp  personnel  officers  in  consequence  called 
upon  these  regimental  personnel  officers  to  aid  them  in  the 
work.  Such  cooperation  was  mutually  advantageous.  It  gave 
the  division  personnel  officer  some  officer  with  whom  he  could 
deal  in  balancing  that  officer's  unit.  And  it  gave  the  oppor- 
tunity to  the  regimental  personnel  officer  to  see  it  that  his 
unit  was  properly  supplied  with  good  men,  thereby  increasing 
his  usefulness  and  prestige.  Frequently  a  transfer  of  10,000 
men  would  all  be  worked  out  on  paper  so  that  every  man  was 
definitely  assigned  not  only  to  the  regiment  but  to  the  company 
in  the  regiment.  How  well  this  worked  out  is  shown  by  the 
following  letter. 

September  9,  1918. 
"FROM:  The  Commanding  General, 

TO:  The  Personnel  Adjutant,  Camp 

SUBJECT:     Personnel  Work. 

1.  The  Commanding  General  desires  to  express  to  you  his 
appreciation  of  the  great  improvement  in  the  Personnel  work 
of  this  camp  during  the  past  three  months. 

2.  It  is  believed  that  the  system  in  vogue  in  this  camp  has 
brought  about  a  much  clearer  understanding  on  the  part  of 
all  officers  of  the  value  of  personnel  work,  and  has  convinced 


BALANCING  A  UNIT  301 

both  officers  and  men  that  when  the  work  of  the  Personnel 
Adjutant  is  efficiently  performed,  through  him,  and  through 
him  only  should  newly  drafted  men  be  assigned,  especially 
when  new  units  are  being  organized. 

3.  As  a  result  of  putting  all  matters  affecting  personnel, 
both  commissioned  and  enlisted  under  the  Personnel  Adjutant, 
and  as  a  result  of  making1  the  Personnel  Adjutant  a  compo- 
nent part  of  the  Headquarters  Staff,  the  — th  Division  re- 
cently organized  at  this  camp  received,  without  the  slightest 
friction,  approximately  twenty  thousand  men  within  four 
hours,  each  man  having  been  assigned  to  his  proper  place  in 
accordance  with  the  table  of  occupational  needs.  The  value 
of  this  work  was  conclusively  proven  when,  within  fourteen 
days  after  its  organization,  the  entire  division  was  reviewed 
by  the  Commanding  General  and  presented  a  most  creditable 
appearance. 

BY  COMMAND  OF  MAJOR  GENERAL  W 

S.  M.  W. 

Major,  General  Staff,  Executive  Officer." 

Requisitions  on  the  War  Department.  As  already  stated 
very  few  requisitions  were  rendered  the  War  Department  by 
combat  division  commanders  for  occupational  specialists  and 
fewer  still  were  honored.  On  the  other  hand,  requisitions 
for  specialists  for  staff  corps  units  totaling  over  a  million 
men  were  filled.  That  personnel  supervisors  were  most  alive 
to  the  need  of  supplying  divisions  with  specialists  is  attested 
by  the  many  reports  on  this  subject  forwarded  to  Washing- 
ton. Such  a  letter,  dated  April  3,  1918,  reflects  the  condition 
at  that  time  very  accurately. 

"During  the  formative  period  of  the  — nd  Division,  its 
Commander  has  been  repeatedly  assured  that  if  requisitions 
upon  him  for  skilled  men  were  honored  in  the  spirit  of  patri- 
otic service,  when  the  time  arrived  for  his  Division  to  depart 
overseas,  there  would  be  no  question  of  his  unit  being  filled 
up  with  men  equally  as  skilled  as  those  he  had  relinquished 
to  other  outfits. 

"On  February  28th,  the  Personnel  Officer  put  in  a  requi- 
sition for  about  forty-eight  hundred  men,  giving  in  detail  the 
desired  skills.  This  was  done,  as  apparently  the  time  had 
arrived  when  the  — nd  Division  should  be  recruited  to  strength 


302 HISTORY  OF  PERSONNEL 

and  prepared  for  foreign  duty.  The  requisition  was  prepared 
in  detail  and  set  forth  the  number  of  men  needed,  with  their 
specific  occupational  skills. 

"Approximately  ten  days  later  a  telegram  was  received, 
asking  that  the  needs  of  each  unit  be  immediately  wired  to 
Washington.  This  being  impracticable,  the  Adjutant  General 
was  wired  that  the  information  was  coming  forward  by  mail. 
It  was  sent  in  chart  form  on  March  the  15th.  Two  days 
later  (March  the  17th)  the  Adjutant  General's  telegram, 
marked  'A',  was  received. 

"For  the  sake  of  emphasis,  I  quote  in  part:  'MEN  WILL 
BE  TAKEN  FROM  THE  GENERAL  RUN  OF  DRAFT 
COMMA  IT  BEING  IMPRACTICAL  TO  HAVE  CON- 
SIDERED OCCUPATIONAL  REQUIREMENTS.'  This 
simple  sentence  at  once  cancels  and  makes  void  the  field-work- 
ers' principal  "Sales"  argument,  and  robs  the  Personnel  Sys- 
tem of  its  chief  claim  to  enthusiastic  support.  As  a  clincher, 
on  March  the  19th  telegrams  copies  marked  "B,"  "C"  and 
"D,"  were  received.  These  telegrams  ordered  forty-eight 
hundred  men  to  the  — nd  Division,  whose  only  qualification 
was  that  they  were  to  be  'white.' 

"I  witnessed  on  yesterday  the  receipt  of  the  'white'  men 

from  Camp — ,  and  I  judge  that  the  Personnel  Officer 

there  considers  that  Mexicans  and  Indians  fall  under  this 
elastic  classification.  I  examined  one  group  of  one  hundred 
and  six  cards,  on  which  there  were  four  occupational  green 
tabs,  two  of  which  were  for  "handling  horses."  Ninety-five 
were  classified  as  farmers,  thirty-two  spoke  German  and,  judg- 
ing from  their  names,  there  was  about  10%  Mexicans  or 
Indians.  As  an  estimate,  I  must  say  that  85%  of  the  nine 
hundred  men  received  from  Camp  Travis  were  farmers,  and 
while  they  looked  stalwart  and  hardy,  they  were  hopelessly 
devoid  of  the  occupational  skills  needed  in  the  — nd  Division. 

"Having  witnessed  the  spirit  with  which  the  — nd  Division 
filled  requisitions  for  overseas  service  and  other  units,  which 
they  had  been  told  would  precede  them  abroad,  can  you 

wonder  that  General  B ,  Major  B ,  Chief 

of  Staff,  Major  M ,  Adjutant  and  Major  B , 

Personnel  Officer,  as  we  stood  watching  the  receipt  of  the 
Camp  Travis  troops,  failed  to  enthuse  over  the  personnel 
work  as  a  whole  and  my  suggestions  for  its  improvement?" 

Gradually  as  time  went  on,  however,  the  War  Department 
was  increasingly  filling  requisitions  for  combat  divisions  and 


BALANCING  A  UNIT  303 

had  the  war  progressed  another  three  months  it  is  safe  to 
predict  such  requisitions  would  have  been  handled  in  the 
same  way  that  staff  corps  requisitions  were.  The  situation 
as  it  existed  on  October  22nd  at  a  Field  Artillery  Replacement 
Camp  is  described  in  the  following  letter  from  the  camp 
commander. 

"From:          Commanding  General. 

To:  The  Adjutant  General  of  the  Army,  Washing- 

ton, D.  C. 
Subject:     Occupational  Needs  for  this  Depot. 

"1.  This  Depot  has  been  running  short  of  late  of  needed 
Specialists  for  our  enlisted  men's  training  school,  and  on  in- 
vestigation it  is  found  that  this  organization  is  on  the  same 
basis,  regarding  the  obtaining  of  men  from  Depot  Brigades, 
as  a  Division,  that  is,  men  are  received  from  the  Depot  Bri- 
gades only  after  all  starred  specialists  have  been  ordered  else- 
where. 

"2.  In  view  of  the  fact  that  one-third  of  our  enlisted  per- 
sonnel are  to  be  turned  out  as  Specialists,  it  is  very  evident 
that  it  will  be  necessary  to  receive  a  better  class  of  men  than 
a  Division  would  ordinarily  get,  since  we  find  that  out  of  every 
thousand  men  from  the  Depot  Brigade  only  about  one-sixth 
are  qualified  to  enter  the  Specialist  Schools.  Had  it  not  been 
for  five  thousand  men,  trained  in  Army  Vocational  Schools, 
who  were  received  the  latter  part  of  July  and  the  first  of 
August,  it  would  have  been  impossible  to  turn  out  the  proper 
proportion  of  Specialists. 

"3.  Following  is  a  list  of  the  twenty-three  schools  that  are 
now  organized: 

Motorcyclists  #  Saddlers 

Motor  Truck  Drivers  Machine  Gunners 

Tractor  Drivers  J   Painters 

Chauffeurs  #  Telephone  Men 

Chief  Mechanics  (light)  Carpenters 

Battery  Mechanics  (light)      #  Clerks 

Machine  Mechanics  (  Heavy )#  Typists 

Chief  Mechanics  (Heavy)     #  Stenographers 
#  Motor  Sergeants  Stable  Sergeants 

Auto  Mechanics  #  Topographers 

Bandsmen  Instrument  Men  and  Scouts. 

Horseshoers. 


304  HISTORY  OF  PERSONNEL 

"4.  The  schools  marked  J  are  at  present  very  short  of 
men,  and  it  is  impossible  to  get  a  sufficient  number  of  quali- 
fied men  from  the  present  class  that  are  being  transferred 
from  the  Depot  Brigade. 

"5.  It  is  suggested  that  a  starred  list  of  the  following 
civilian  occupations  be  made  for  the  F.A.R.D.,  and  furnished 
the  Depot  Brigade,  so  that  our  present  shortage  will  in  time 
be  remedied: 

200  per  month   (Blacksmiths    (7L7g)       For      Horseshoers' 

School. 

100  per  month   (Leather  Workers   (47,49L)    (Canvas  Work- 
ers  (76a.76s)   For  Saddlers'  School. 
75  per  month   (Painters  (13)  For  Painters'  School. 
50  per  month   (Carpenters  (8cl,8c,8g,8h,8wh,)  For  Carpen- 
ters' School 

125  per  month   (Electricians       (10ee,10es,10g,10su,10st,10u) 
(Telephone  Men  32t,33) 

For  Telephone  School. 

200  per  month   (Clerical  Workers  (38)   (Accountants  (37ac,- 
37au,37g,37s) 

(Stenographers     (39s,39st,39t)     For    Clerks' 
School. 

150  per  month   (Draftsman  (29) 

(Surveyors  (30)  For  Topographers'  School. 
150  per  month   (Musicians  (44)  For  Bandsmen 
150  per  month   (Machinists  and  Mechanics  (6g,6o,6ms,  Fore- 
man Preferred)  For  Motor  Sergeants'  School." 

The  main  reason  such  conditions  arose  was  that  the  supply 
of  men  coming  into  the  camps  was  always  less  than  that 
immediately  needed.  Conditions  in  Europe  kept  speeding  up 
the  army  program  and  the  capacity  of  the  camps  was  stretched 
to  the  utmost  to  keep  up  at  all.  In  consequence,  plans  for 
assigning  men  had  to  be  more  of  a  "hand  to  mouth"  program 
than  any  one  desired.  All  officials  were  straining  every 
nerve  to  secure  a  surplus  of  men  in  order  that  units  could  be 
organized  more  freely  but  the  ideal  was  never  reached. 


BALANCING  A  UNIT  305 

BALANCING  OF  UNITS  ALREADY  PARTIALLY 
FORMED 

The  National  Guard  divisions  are  good  examples  of  organi- 
zations that  were  already  partially  formed  when  the  person- 
nel officer  started  to  balance  them.  Most  national  guard  regi- 
ments were  composed  of  infantry  before  the  war.  But  a  com- 
bat division  is  less  than  half  infantry.  When  the  division  was 
formed  it  was  necessary  to  remake  infantry  regiments  into 
artillery  or  engineer  regiments  or  even  trains.  Moreover, 
since  national  guard  regiments  totalled  far  less  than  the  3000 
men  of  a  war  strength  infantry  regiment  it  was  necessary 
to  combine  two  or  more  of  them  to  make  up  a  new  regiment. 
The  result  of  such  reorganization  was  to  have  many  men 
improperly  placed  when  their  best  individual  usefulness  to 
the  service  is  considered. 

Each  enlisted  man  was  interviewed  and  his  qualification 
card  made  out.  An  assistant  personnel  officer  then  went  over 
each  card  with  the  company  commander  and  additional  infor- 
mation was  added  in  the  light  of  the  latter's  knowledge  of 
the  soldier.  The  cards  were  checked  in  the  space  marked 
"Preferred"  of  those  men  whenever  the  company  commander 
stated  that  they  were  key  men  in  the  organization.  Very 
few  company  commanders  took  advantage  of  this  procedure 
to  insist  on  having  a  large  number  of  men  checked,  even  though 
it  was  understood  that  all  unchecked  men  were  available 
for  transfer  without  consulting  the  company  commander.  An 
expert  classifier  next  marked  the  cards  to  indicate  in  terms 
of  what  trade  he  should  be  classified. 

Following  this  an  inventory  was  made  as  to  how  many  men 
of  each  trade  there  were  in  each  company  and  through  combin- 
ing these  company  totals  how  many  there  were  in  each  regi- 
ment or  separate  battalion;  and  last  of  all  how  many  in  the 
entire  division.  These  totals  were  compared  with  Chart  B 
(and  at  a  later  date  with  the  tables  of  occupational  needs) 
in  order  to  see  where  there  were  shortages  as  compared  with 
the  actual  requirements. 


306  HISTORY  OF  PERSONNEL 

The  personnel  officer  then  proceeded  to  supply  these  short- 
ages as  best  he  could  from  the  available  supply,  first  attempt- 
ing to  obtain  them  from  companies  within  the  same  battalion  or 
regiment  and  if  this  was  impossible  from  some  other  regi- 
ment. Gradually  the  needs  of  each  organization  would  thus 
be  provided  for  as  far  as  it  was  possible. 

In  most  divisions  one  unit  would  be  balanced  at  a  time, 
surplus  men  being  transferred  to  a  unit  where  they  were 
needed  and  the  shortages  supplied.  In  other  divisions  most 
of  the  transfers  would  be  worked  out  on  paper  and  when 
all  was  ready,  all  would  be  transferred  at  the  same  time. 

This  sounds  simple.  Actually,  the  task  of  balancing  a  divi- 
sion already  partially  formed  is  an  extremely  complicated 
one.  There  is  no  way  of  escaping  making  all  sorts  of  excep- 
tions in  order  to  please  individual  officers.  For  example,  a 
colonel  will  object  to  men  being  transferred  out  of  his  regi- 
ment and  unless  appeased  make  such  a  fuss  that  many  of 
the  transfers  will  be  revoked.  But  if  his  attention  is 
called  to  the  good  men  he  is  going  to  receive  in  return  he 
may  be  mollified,  particularly  if  an  exception  is  made  in  the 
case  of  some  one  man  in  his  own  regiment  whom  it  is  appar- 
ent he  is  particularly  interested  in  keeping.  Such  negotia- 
tions, however,  take  time  and  constantly  upset  the  plans 
already  formulated. 

Another  difficulty  is  that  after  the  plans  are  practically  com- 
pleted, it  is  discovered  for  example,  that  there  is  a  consid- 
erable shortage  of  auto  repairmen,  and  a  surplus  of  car- 
penters and  electricians.  A  few  of  these,  particularly  the 
electricians,  may  have  had  auto  repair  experience.  They  can 
be  so  used.  The  remainder  are  studied  and  among  them  are 
men  who  are  useful  at  another  occupation,  say  machinist. 
An  attempt  is  made  to  substitute  them  for  machinists  who 
have  auto  repair  experience.  If  this  is  successful,  the  person- 
nel adjutant  has  just  so  many  more  to  be  used  against  the 
shortage.  And  so  it  goes.  But  each  substitution  causes 


BALANCING  A  UNIT  307 

changes  in  the  totals  and  upsets  possibly  other  schemes  for 
filling  all  the  positions  with  well  qualified  men. 

Experience  has  shown  that  an  already  formed  division  can 
thus  be  balanced  to  the  very  great  advantage  of  the  division. 
But  such  balancing  as  can  be  accomplished  under  the  circum- 
stances can  not  be  so  thorough  as  would  have  been  the  case 
if  all  the  men  had  been  originally  assigned  from  a  depot 
brigade  by  the  same  personnel  adjutant. 


CHAPTER  25 

METHODS  EMPLOYED  TO  INTEREST  OFFICERS 
IN  THE  PROPER  PLACEMENT  OF  MEN 

Personnel  work  in  its  real  meaning  was  unknown  to  the  reg- 
ular army  when  war  broke  out  and  it  was  likewise  unknown  to 
most  business  houses  in  the  country.  Only  in  a  comparatively 
few  corporations  was  there  an  employment  manager  and  not 
in  all  of  these  was  real  personnel  work  prosecuted,  for  many 
employment  managers  did  little  else  than  hire  new  employees. 
It  is  no  wonder  then  that  officers  looked  askance  at  personnel 
work  when  it  was  introduced  into  the  Army  and  that  many 
were  slow  to  show  any  interest  in  it. 

In  this  chapter  are  recounted  some  of  the  difficulties  that 
were  experienced  in  educating  such  officers  to  a  full  apprecia- 
tion of  what  personnel  work  meant;  and  also  some  of  the 
methods  used  in  accomplishing  this. 

ANIMOSITY  IN  NATIONAL  ARMY  CAMPS  TOWARD 

PERSONNEL  WORK  BECAUSE  OF  WAR 

DEPARTMENT  REQUISITIONS 

As  has  been  stated  previously,  the  leaders  in  personnel  work 
had  not  planned  an  organization  which  should  bring  about 
transfers  of  enlisted  men  between  camps.  The  only  organiza- 
tion originally  planned  and  put  into  operation  provided  for 
one  captain  in  each  camp  with  supervisors  traveling  between 
camps  so  as  to  co-ordinate  and  standardize  the  work.  And 
this  captain  was  made  an  assistant  to  the  adjutant  as  it  was 
felt  that  his  work  would  be  a  help  to  that  officer. 

Due,  however,  to  the  shortage  of  men  and  the  demands  of 
General  Pershing  and  the  Staff  Corps  for  all  sorts  and  kinds 
of  specialists  it  was  most  natural  for  the  War  Department  to 

308 


PLACEMENT  OF  MEN  309 

requisition  the  national  army  camps  for  the  needed  men. 
There  is  no  question  whatever  that  this  would  have  been  done 
whether  a  personnel  organization  existed  or  not.  The  men  had 
to  be  obtained  and  these  camps  were  the  most  available  source 
of  supply.  The  remarks  of  a  captain  of  the  French  Army  are 
apropos,  "I  lined  my  company  up  fully  forty  times  a  month 
and  ordered  all  butchers,  or  carpenters,  or  accountants,  or 
what  not,  to  step  two  paces  to  the  front.  And  then  I  turned 
them  over  to  some  officer  and  I  never  saw  them  again."  It  is 
a  fair  question  actually  whether  the  personnel  system  as  it  was 
organized  was  not  more  favorable  to  company  officers  than 
the  French  system. 

Putting  conjecture  aside,  it  is  a  fact  that  many  officers  came 
to  feel  very  strongly  against  the  personnel  system  because 
through  it  they  lost  many  of  their  good  men.  And  because  of 
this  fact  it  was  much  more  difficult  to  get  them  to  see  the  real 
value  of  the  work,  if  not  to  themselves,  at  least  to  the  army 
as  a  whole. 

The  general  attitude  of  officers  toward  transferring  men 
became  so  critical  in  December  due  to  these  many  transfers 
that  a  letter  was  issued  on  the  subject,  dated  December  8, 
1917,  as  follows: 

"From:     The  Adjutant  General  of  the  Army. 
To:  The  Commanding  General,  — th  Division. 

Subject:  Transfer  from  National  Army  Cantonments  to 
Regular  Army,  National  Guard  and  Special  and 
Technical  Organizations. 

"The  Secretary  of  War  directs  that  the  following  be  com- 
municated to  each  National  Army  Division  Commander: 

"1.  Frequent,  and  for  the  present,  continuous  calls  must 
be  made  upon  the  Commanding  General  of  National  Army 
Cantonments  for  the  transfer  of  men  under  their  command 
for  the  purpose  of  organizing  special  and  technical  units, 
urgently  needed  for  the  service  of  the  rear  with  our  Ameri- 
can Expeditionary  Forces.  It  is  absolutely  essential  that 
this  service  be  organized  at  the  earliest  possible  date  in 
order  that  as  combatant  organizations  arrive,  they  may  be 
expeditiously  transported  and  supplied. 


310  HISTORY  OF  PERSONNEL 

"2.  It  is  also  necessary  to  call  upon  National  Army  Can- 
tonment Commanders  for  transfer  of  men  to  some  of  the 
Regular  Army  and  National  Guard  Divisions  to  complete 
their  organization  for  early  shipment  overseas. 

"3.  In  order  to  supply  these  demands  from  forces  now 
available,  it  is  necessary  to  transfer  men  from  National 
Army  Cantonments,  even  if  it  results  in  the  reduction  of  the 
National  Army  Division  below  their  authorized  organized 
strength.  The  only  other  solution  possible  would  be  the 
entire  disbandment  of  some  National  Army  Divisions  in 
order  to  keep  others  at  their  organized  strength.  This  is 
deemed  a  most  unwise  policy,  as  it  is  considered  of  advan- 
tage to  all  the  divisions  concerned  to  maintain  their  organ- 
ization, continue  their  training,  and  be  filled  to  full  strength 
at  the  earliest  practicable  date. 

"4.  All  Division  Commanders  therefore,  are  called  upon 
to  fully  cooperate  in  furnishing  promptly  the  number  of 
men  required,  and  men  with  the  special  qualifications 
required  when  such  are  requested,  in  order  that  there  may 
be  the  least  delay  in  furnishing  to  our  forces  in  France  the 
service  urgently  needed. 

"5.  Future  drafts  will  be  continuous,  keeping  pace  with 
the  supplies  of  clothing  and  equipment  available.  In  order 
to  prevent  disorganization  within  the  Divisions,  all  future 
drafts  received  will  be  first  assigned  to  Depot  Brigades. 
There  occupational  classifications  of  the  men  will  be  com- 
pleted as  quickly  as  possible,  and  reports  forwarded  thereon 
to  The  Adjutant  General  of  the  Army  in  accordance  with 
the  instructions  covering  the  semi-monthly  reports  on  the 
printed  forms  (CCP-9).  Depot  Brigade  Commanders  will 
then  supply  on  requisition  from  Division  Commanders  such 
numbers  of  men  as  are  required  to  fill  up  as  fast  as  prac- 
ticable, organizations  within  the  divisions.  Division  Com- 
manders in  making  these  requisitions  will  call  for  only  the 
numbers  of  specially  qualified  men  that  are  needed  for 
service  within  their  divisions.  This  will  leave  in  the  Depot 
Brigades  the  remaining  men  of  special  qualifications  to  fill 
requisitions  for  special  units  and  other  organizations  out- 
side the  Divisions." 

This  letter  had  a  marked  effect  on  some  officers,  but  on  the 
whole  the  grumbling  continued  as  before.  Officers  are  human 
beings  and  it  was  most  natural  for  complaints,  when  good 


PLACEMENT  OF  MEN  311 

men  were  taken  from  them  upon  whom  they  had  spent  time 
in  drilling  with  the  expectation  of  developing  them  into  a  prize 
organization. 

This  condition  has  only  been  reviewed  here  as  it  must  be 
understood  in  order  to  appreciate  much  of  the  criticism  leveled 
at  personnel  work  in  the  early  days  and  still  echoed  occasion- 
ally by  officers  whose  only  contact  with  it  was  in  the  early 
months  of  the  National  Army  Camps. 

STOPPING  THE  "PASSING  OF  CULLS" 

Another  condition  which  seriously  affected  the  efficiency  of 
personnel  work  was  the  "game"  of  "passing  culls."  Many  offi- 
cers considered  it  a  huge  joke  to  transfer  inferior  men  to  an- 
other organization  when  opportunity  arose.  But  any  such  prac- 
tice injured  personnel  work  for  it  was  essential  that  men 
would  be  selected  and  transferred  according  to  specifications. 
If  this  was  not  done,  personnel  work  would  be  impossible 
except  on  a  very  limited  scale. 

No  better  description  can  be  given  of  the  way  in  which 
requisitions  were  handled  by  some  officers  than  that  of  Ring 
W.  Lardner  in  the  Saturday  Evening  Post  of  June  8,  1918: 

"Camp  Grant,  Nov.  4. 

"Friend  Al:  Well  Al  they  have  begin  to  bust  up  our  regt. 
and  take  men  away  from  it  and  the  men  they  take  will  get 
to  France  before  the  rest  of  us  the  lucky  stiffs  but  they  don't 
send  them  right  to  France  from  here  but  they  send  them 
down  south  to  the  national  guards  camps  and  fill  up  the 
national  guards  with  them  and  the  national  guards  are  going 
to  get  across  the  pond  first  because  Secty.  Daniels  wants 
to  save  good  regts.  for  the  finish. 

"Well  Al  they  can't  send  me  to  France  too  soon  but  it  looks 
like  they  wasn't  a  chance  for  a  man  like  I  to  get  sent  with 
the  national  guards  because  the  men  we  are  sending  down 
south  is  the  riff  and  raff  you  might  say  who  we  want  to  get 
rid  of  them  so  when  Secty.  Daniels  sends  word  that  the 
national  guards  at  such  and  such  a  place  want  7  or  800  men 
the  officers  here  picks  them  out  from  amidst  the  kitchen 
policemen  and  the  guard  house." 


312  HISTORY  OF  PERSONNEL 

"Passing  Culls"  and  keeping  the  good  men  was  most  natural. 
Such  action  came  from  officers  who  looked  upon  their  own  or- 
ganization with  great  pride  and  did  not  realize  that  the  Army 
as  a  whole  merited  chief  concern  and  not  their  own  small  com- 
pany, battalion,  regiment  or  even  division.  Coupled  with  this 
restricted  view  of  what  was  important  was  the  normal  selfish- 
ness of  man.  To  counteract  such  a  point  of  view  it  was  neces- 
sary to  educate  officers  to  a  broad  vision  of  what  the  whole 
army  or  even  the  nation  must  accomplish.  Very  few  officers 
failed  to  respond  in  a  most  remarkably  unselfish  way  once 
they  had  this  point  of  view.  An  incident  at  Camp  Taylor 
illustrates  all  this.  Two  weeks  after  a  private  by  the  name 
of  Alexander  had  been  received  in  camp  he  was  ordered  trans- 
ferred from  an  infantry  company  to  the  Signal  Battalion  as 
he  was  an  expert  electrician.  Both  the  Company  Commander 
and  the  Colonel  protested  most  vigorously.  Finally  it  was  put 
to  them  this  way,  "Supposing  your  company  was  going  over 
the  top,  would  you  rather  have  this  private  as  your  first 
sergeant  or  behind  the  lines  as  an  electrician  looking  after 
signalling?  Would  he  be  of  greater  value  to  you  helping  lead 
your  men  or  seeing  to  it  that  you  were  properly  protected  by 
barrage  fire?"  As  they  pictured  their  relation  to  the  rest  of 
the  division  they  saw  that  all  units  must  be  properly  equipped 
or  they  would  suffer.  And  they  withdrew  their  protests. 
Moreover,  the  Colonel  shook  the  officer's  hand  most  effusively 
several  days  later  and  thanked  him  for  presenting  this  truer 
point  of  view. 

The  personnel  organization  early  realized  that  this  narrow 
point  of  view  was  one  of  the  great  obstacles  to  its  success. 
And  again  and  again  in  varied  ways  it  emphasized  the  need 
for  morale  work  directed  at  the  officers  that  they  might  appre- 
ciate their  true  responsibility  to  the  Army  as  a  whole.  Various 
methods  were  used  to  accomplish  this  which  are  mentioned  in 
the  next  section.  One  factor  may  be  given  here  as  it  is  pecu- 
liarly related  to  this  particular  subject  of  "passing  culls." 

At  one  camp,  the  commanding  general  ordered  the  officers 


PLACEMENT  OF  MEN  313 

in  the  depot  brigade  to  select  the  best  one-third  of  their  men 
and  transfer  them  into  the  division.  This  order  was  obeyed 
by  only  a  few  officers  with  a  resulting  transfer  of  inferior 
men  into  the  division.  A  few  days  later  the  War  Department 
ordered  all  the  men  in  the  depot  brigade  transferred  to  another 
camp.  When  it  became  known  throughout  the  camp  that  they 
had  the  inferior  men  and  another  camp  had  the  superior  men 
there  were  many  informal  indignation  meetings.  And  through 
this  experience  many  an  officer  came  to  see  that  the  best  in- 
terests of  all  lay  in  sending  good  men  when  they  were  called 
for.  From  that  time  on  this  particular  camp  was  singularly 
free  from  the  charge  of  "passing  culls." 

By  July,  1918,  it  was  a  decided  exception  to  the  rule  to 
find  "culls"  being  deliberately  shipped  when  good  men  were 
called  for.  The  change  was  not  due  entirely  to  the  personnel 
organization,  of  course,  but  it  is  certain  that  it  did  play  an 
important  part  in  this  change. 

EDUCATING  OFFICERS  AS  TO  THE  MEANING  OF 
PERSONNEL  WORK 

Personnel  work,  as  has  already  been  pointed  out,  was  an 
innovation  in  the  Army.  War  Risk  Insurance  was  also  an 
innovation.  But  all  officers  understood  insurance  and  realized 
its  benefits.  In  consequence,  it  experienced  little  of  the  anta- 
gonism experienced  by  those  engaged  in  personnel  work. 
This  proves  most  conclusively  that  it  was  not  because  person- 
nel work  was  an  innovation  that  it  was  opposed,  but  rather 
because  it  was  unknown  and  not  understood. 

A  number  of  different  methods  were  employed  more  or  less 
consciously  to  educate  officers  up  to  a  realization  of  what  per- 
sonnel work  really  meant. 

From  the  beginning  it  was  emphasized  that  "service"  should 
be  the  keynote.  At  conferences  and  through  supervisors  the 
personnel  officer  was  urged  to  do  anything  he  was  called  upon 
to  do  whether  it  was  related  to  personnel  work  or  not,  and  to 
do  it  as  quickly  and  efficiently  as  possible.  It  has  already  been 


314  HISTORY  OF  PERSONNEL 

pointed  out  in  Chapters  19  and  20  how  this  policy  resulted 
in  the  transfer  of  much  of  what  was  strictly  adjutant's  work 
to  the  office  of  the  personnel  officer.  Much  emphasis  was  put 
upon  'the  information  section  of  the  office.  Here  officers  and 
civilians  alike  were  informed  as  to  where  Tom  Smith  from 
Keysport,  Kentucky,  or  any  other  soldier  could  be  found.  And 
from  the  same  section  were  furnished  to  the  Y.  M.  C.  A.  and 
similar  organizations  lists  of  men  who  could  teach  English  or 
who  could  furnish  entertainment.  The  needs  of  officers  for 
enlisted  men  of  special  qualifications  were  studied  and  often 
these  soldiers  were  brought  in  even  before  the  officer  had  asked 
for  them.  An  illustration  of  this  sort  is  worth  noting  as  it 
resulted  in  the  winning  of  a  heretofore  hostile  Chief  of  Staff. 
The  personnel  officer  overheard  this  officer  utter  the  exclama- 
tion, "I  wish  I  had  a  real  private  secretary,  that's  what  I 
need."  On  investigation,  it  was  found  the  officer  was  poor  in 
French  and  was  much  bothered  with  the  handling  of  French 
officers  and  particularly  with  their  reports.  The  personnel  offi- 
cer found  a  soldier  who  had  had  several  years'  experience  in 
the  United  States  Consular  Service  in  South  America,  who 
spoke  French  and  Spanish  fluently,  was  a  college  graduate 
and  had  recently  acted  as  private  secretary  to  a  railroad  offi- 
cial. When  called  in  it  was  found,  moreover,  that  he  was  a 
man  of  fine  personal  appearance  and  bearing.  The  personnel 
officer  then  broached  the  subject  to  the  Chief  of  Staff,  only  to 
be  told  there  wasn't  such  a  man  as  he  wanted  in  the  division. 
But  when  he  was  produced  and  it  was  found  that  he  was  only 
a  "buck"  private,  the  Chief  of  Staff  melted  and  apologized 
for  his  previous  unfriendly  action. 

In  some  camps  lectures  were  used  to  advantage.  At  one 
camp  where  the  proper  spirit  was  particularly  lacking,  a 
supervisor  secured  permission  to  address  all  the  officers,  a 
group  at  a  time.  On  the  surface  the  topic  was  "Qualification 
Cards,"  but  really  it  was  "The  Needs  of  your  Division,  over 
against  your  Company."  Many  officers  not  connected  with 
personnel  work  testified  to  the  value  of  the  talks. 


PLACEMENT  OF  MEN  315 

The  weekly  letters  sent  out  by  the  Committee  to  personnel 
officers  frequently  called  attention  to  the  bad  effects  of  poor 
team-work.  More  often  they  portrayed  the  good  results  of 
good  work.  Two  paragraphs  from  such  a  letter  read  as  fol- 
lows: 

"The  receipt  of  a  detachment  of  good  men  on  one  of  his 
recent  requisitions,  prompted  the  Major  General  receiving 
the  men  to  write  the  following  to  the  Major  General  who 
supplied  them: 

'I  am  writing  to  express  my  great  appreciation  of  your 
care  in  selecting  the  three  hundred  men  that  were  for- 
warded from  your  division  last  week.  They  are  certainly 
a  refreshing  change  from  the  culls  shipped  to  me  by  the 
regular  cavalry  regiments  to  form  the  division  trains. 
After  looking  them  over,  the  train  commander  reported 
to  me  that  he  was  now  prepared  to  break  every  non-com- 
missioned officer  in  his  command,  in  view  of  the  good 
material  sent  by  you.'  " 

Frequent  conferences  of  personnel  officers  helped  greatly 
in  this  respect.  They  afforded  a  good  opportunity  for  the 
officers  from  different  camps  to  get  acquainted  with  one  an- 
other. Thus  they  came  to  see  that  they  were  part  of  a 
great  army  organization,  and  that  they  were  working  for 
the  best  interests  of  the  Army  as  a  whole,  and  they  could  not 
help  but  preach  the  same  doctrine  to  other  officers  with  whom 
they  came  in  contact.  Moreover,  it  made  it  practically  impos- 
sible for  them  to  allow  the  shipment  of  inferior  men  when 
they  personally  knew  the  personnel  officer  who  would  receive 
them. 

Requisitions  were  frequently  called  for  from  organization 
commanders  when  their  units  were  to  be  balanced.  Often 
there  was  no  real  need  for  requisitions  as  the  personnel  officer 
knew  the  qualifications  of  the  men  in  the  units  and  the  total 
needs.  But  by  calling  for  such  requisitions  officers  had  to 
think  out  what  they  actually  did  need,  and  in  so  doing  came 
to  appreciate  the  value  of  personnel  work.  Following  is  one 


316  HISTORY  OF  PERSONNEL 

such  requisition,  dated  November  27,  1917,  and  prepared 
when  the  only  guide  to  the  needs  of  the  engineer  regiment 
for  occupational  specialists  was  Chart  B.,  and  the  Colonel's 
own  knowledge  of  the  situation. 

"1.  Following  are  a  number  of  men  of  various  trades  re- 
quired to  bring  an  engineer  regiment  up  to  a  typical  standard : 
Topographical  surveyors  and  sketchers,  at  least  10  of 

whom  should  be  good  instrument  men 24 

Draftsmen,  topographical  and  mechanical 14 

Photographers    4 

Lithographers  and  zincographers 8 

Quarry  men  (skilled  in  explosives) 5 

Miners 14 

Skilled  Carpenters 50 

Bridge  Carpenters 62 

Blacksmiths    10 

Electricians     20 

Enginemen,  steam 4 

Masons    7 

Calkers    17 

Riggers    16 

Expert  Axmen    25 

Horseshoers    4 

Farriers   9 

Saddlers    3 

Musicians    3 

Signal  men,  as  required  by  Regulations 13 

Wheelwrights    1 

Linemen    15 

Sign  Painters 6 

Steam  Shovel  Men 2 

Stenographers    10 

"2.  In  addition  to  the  above,  we  could  use  as  Master  Engi- 
neers suitable  men  of  following  vocations.  These  should  all 
be  high  grade  men  of  Construction  Superintendent  type. 
We  desire  to  interview  such  men  before  transfer. 

Lithographer 1       Timber  Bridge  Man ...  1 

Quarryman    1       Electrical  Engineer.  ...  1  (college) 

(Explosives  expert)        Rigger ,  .  1 

Hard  Rock  Miner..  .  1  Building  Superintendent  1  (concrete) 
Steel  Bridge  Man..  .  1  Boiler  and  tank  maker..  1  (heavy 

plates)" 


PLACEMENT  OF  MEN  317 

After  a  colonel  had  prepared  such  a  requisition  he  was 
much  more  of  a  supporter  of  personnel  work,  provided  he 
received  the  men  later  on;  and  he  helped  to  educate  others. 

The  use  of  civilian  supervisors  was  a  very  great  help  in 
that  they  met  high  ranking  officers  on  a  more  informal  basis 
and  had  greater  opportunity  to  explain  the  working  of  the 
system.  The  military  supervisor  was  forced  much  more 
often  to  prepare  a  report  on  conditions  as  he  found  them, 
and  furnish  the  commanding  officer  a  copy  for  his  comment 
before  he  had  a  real  opportunity  to  explain  just  what  was 
wanted  and  why  it  should  be  done. 

But  all  these  methods  were  after  all,  subordinate  to  that 
of  the  influence  of  the  personnel  officer  himself  in  the  camp 
Capable  personnel  officers  required  very  little  help  from  the 
outside  in  order  to  establish  cordial  relations  with  the  officers 
of  the  camp  and  to  carry  out  the  provisions  of  effective  per- 
sonnel work.  Inferior  personnel  officers,  on  the  other  hand, 
could  not  win  admiration  for  the  system  even  when  coupled 
up  with  all  the  methods  outlined  above.  Personnel  work 
lived  and  prospered  where  its  local  representative  demon- 
strated day  by  day  that  it  was  a  valuable  adjunct  to  the  mili- 
tary machine.  Such  service  as  illustrated  below  could  not 
fail  to  have  favorable  results.  A  personnel  adjutant 
compiled  a  little  book  containing  all  the  forms  used 
by  his  office,  together  with  an  explanation  of  the  function 
and  value  of  each  one,  and  a  brief  resume  of  the  work  of 
his  office.  About  four  days  after  a  new  commanding  officer 
arrived  in  the  camp  he  added  to  this  little  book  a  concise 
and  up-to-the-minute  summary  of  the  exact  status  of  the  per- 
sonnel of  the  camp.  He  then  placed  the  book  upon  the  desk 
of  the  Commanding  Officer.  Naturally,  the  latter  was 
appreciative  of  so  complete  a  statement  of  the  facts  he  needed 
to  know  about  the  camp,  and  was  interested  in  the  processes 
by  which  the  figures  were  obtained.  It  was  an  easy  matter 
after  that  to  secure  his  hearty  cooperation  in  the  necessary 
activities  of  personnel  work. 


CHAPTER  26 

SELECTION  OF  MEN  FOR  OFFICERS' 
TRAINING  SCHOOLS 

THE  PROBLEM 

A  quite  distinct  phase  of  placement  was  encountered  in  con- 
nection with  the  Officers'  Training  Shools.  Here  emphasis 
had  to  be  placed  upon  those  qualifications  which  pertain  to 
an  officer  as  distinguished  from  qualifications  which  fit  a  man 
to  do  civilian  work  within  the  Army.  In  other  words,  in 
selecting  officer  material  such  qualifications,  as  "physical  qual- 
ities", "intelligence",  "leadership",  "personal  qualities",  etc., 
had  to  be  considered  rather  than  whether  the  man  was  a 
"carpenter"  or  "blacksmith",  etc. 

That  there  was  a  real  problem  here  is  apparent  to  all. 

"At  the  time  of  the  armistice  the  strength  of  the  Army 
was  in  round  figures  3,500,000  men  and  180,000  officers.  The 
mobilization  of  this  great  force  for  the  rank  and  file,  so 
largely  accomplished  through  the  successful  application  of 
compulsory  service,  has  naturally  excited  more  general  inter- 
est than  the  organization  of  the  officer  personnel.  But  it  is 
no  disparagement  of  the  achievement  of  the  recruiting  service 
arid  the  draft  administration  to  express  the  opinion  that  the 
selection  and  training  of  the  officers'  corps  was  an  equally  dif- 
ficult and  an  equally  important  task.  An  experienced  French 
officer,  engaged  in  a  study  of  the  American  mobilization,  re- 
cently remarked:  'I  know  you  recruited  3,500,000  men  in 
18  months.  That  is  very  good  but  not  so  difficult.  But  I 
am  told  also  that  although  you  had  no  officer  reserve  to  start 
with  yet  you  found  160,000  new  officers,  most  of  them  com- 

318 


OFFICERS'  TRAINING  SCHOOLS  319 

petent.  That  is  what  is  astonishing  and  what  was  impos- 
sible. Tell  me  how  that  was  done ' 

"At  the  outset  it  is  necessary  to  understand  and  appreciate 
the  scope  and  effect  of  the  "Plattsburg  Idea"  before  the  war, 
because,  so  far  at  least  as  the  line  of  the  Army  is  concerned, 
it  was  the  preliminary  work  of  the  Plattsburg  camps  in  1915- 
16  that  made  at  all  possible  the  prompt  recruitment  and  train- 
ing of  officers  on  a  large  scale.  Our  French  observer  was 
only  partially  informed  when  he  commented  on  the  lack  of 
an  officers'  reserve,  for,  in  truth,  the  "Plattsburg  Idea"  had 
created  a  potential  officers'  reserve  of  high  quality  and  sub- 
stantial numbers  ready  to  respond  at  need.  It  was  not  simply 
that  20,544  men  had  attended  "Plattsburg  Camps"  prior  to 
April,  1917,  and  were  ready  almost  unanimously  to  respond 
to  the  call  to  the  colors;  it  was  that  a  great  moral  force  had 
been  active  in  the  land  and  that  a  powerful  and  effective  civil 
organization,  in  the  shape  of  the  Military  Training  Camps 
Association,  had  been  created  in  1915-1916,  ready  to  meet 
an  emergency  for  which  no  machinery  of  the  government  was 
available."  1 

The  work  of  securing  this  officer  material  carried  on  by  the 
Military  Training  Camps  Association  is  not  a  part  of  this 
history,  except  that  it  must  be  noted  here  in  the  work  of 
the  Committee  to  make  the  whole  matter  clear. 

In  selecting  candidates  for  the  first  series  of  Officers'  Train- 
ing Schools,  reliance  was  placed  upon  three  things :  the  physi- 
cal examination,  the  candidate's  application  blank,  and  let- 
ters of  recommendation.  All  of  this  was  largely  directed 
and  carried  on  by  the  military  Training  Camps  Association. 
Commencing  with  the  third  series  of  camps  a  fourth  instru- 
ment was  employed,  namely,  the  Scott  Rating  Scale.  (This 
scale  is  discussed  in  detail  in  Chapter  43  of  this  volume  and 
in  Chapter  XII  of  Volume  II.) 

After    the    candidates    were    assembled    in    the    Training 


1  From  "The  Emergency  Officers,"  by  Lieut.  Col.  Grenville  Clark  in  "National 
Service"  of  April,  1919. 


320  HISTORY  OF  PERSONNEL 

Schools  a  second  problem  of  selection  arose.  Who  should  be 
commissioned  and  who  should  be  rejected.  The  Scott  Rating 
Scale  was  used  extensively  in  this  connection. 

Commencing  with  the  third  series  of  Training  Camps  selec- 
tions for  the  camps  were  taken  almost  entirely  from  the 
ranks.  That  good  material  could  be  found  there  is  shown  in 
the  following  table. 

Intelligence  Rating    Percent  of  Enlisted  Men    Percent  of  Officers 
A  5.2%  47.5% 

B  9.9  85.2 

C+  18.3  14.3 

C  28.7  2.8 

C—  21.3  0.2 

D—  7.4  0.0 

D  9.2  0.0 

These  figures  mean,  for  example,  that  5.2%  of  enlisted 
men  are  superior  in  the  intelligence  test  to  52.5%  of  officers. 
Expressing  them  in  another  way  we  have: 

2.4%    of  enlisted  were  superior  to  75%   of  officers   in  the 

intelligence  test 
6.4%  of  enlisted  were  superior  to  50%  of  officers  in  the 

intelligence  test 
10.2%  of  enlisted  were  superior  to  25%  of  officers  in  the 

intelligence  test 

Success  in  these  psychological  tests  does  not  mean  certain 
success  as  an  officer.  But  intelligence  is  undoubtedly  an  im- 
portant factor,  and  it  was  so  demonstrated  in  connection  with 
the  officers'  training  schools. 

The  problem  of  selecting  officer  material  was  to  discover 
who  the  enlisted  men  were  who  were  equal  to  or  superior  to 
the  average,  or  slightly  below  average  officer,  and  give  him 
the  opportunity  to  become  an  officer.  Not  only  was  it  neces- 
sary to  consider  the  factor  of  intelligence  but  also  all  other 
factors  essential  to  an  officer. 

The  following  pages  present  some  of  the  methods  and  re- 
sults obtained  in  selecting  personnel  for  the  training  camps 


OFFICERS'  TRAINING  SCHOOLS  321 

and  in  selecting  those  to  be  commissioned  after  their  three 
months'  training. 

SELECTING  CANDIDATES  FOR  THE  OFFICERS' 
TRAINING  SCHOOLS 

The  First  and  Second  Reserve  Officers'  Training  Camps. 
On  April  17th  the  details  of  the  First  Officers'  Camps  were 
announced  by  the  War  Department  calling  for  16  camps  to 
consist  of  2,500  men  each.  It  was  originally  planned  to  have 
the  camps  open  on  May  5th,  but  this  date  was  changed  later 
to  May  15th.  In  this  emergency  the  Military  Training  Camps 
Association  took  hold  of  the  matter.  Through  their  efforts 
approximately  90,000  men  were  selected  from  150,000  appli- 
cations and  physically  examined.  Seventy  thousand  were 
certified  as  being  satisfactory  officer  material  and  from  this 
number  40,000  were  finally  selected.  The  number  actually 
commissioned  was  over  27,341.  All  this  was  a  rush  job 
order  and  it  is  most  gratifying  that  such  a  very  capable  group 
of  men  were  finally  commissioned. 

On  the  basis  of  this  experience  the  Military  Training  Camps 
Association,  in  cooperation  with  the  War  Department,  pre- 
pared new  application  blanks.  After  filling  out  the  blanks 
the  selected  candidates  were  called  upon  for  a  personal  inter- 
view and  physical  examinations,  and  upon  this  basis  the 
candidates  were  finally  selected. 

The  Third  Officers'  Training  Schools.  These  schools 
marked  a  change  in  the  general  policy  of  officer  training 
schools.  In  the  first  two  schools  men  were  selected  from 
civilian  life.  Hereafter  the  great  majority  of  men  were  to 
be  obtained  from  enlisted  men  already  in  the  Army.  The 
same  general  policy  of  selecting  men  on  the  basis  of  a  physi- 
cal examination,  an  application  blank  and  letters  of  recom- 
mendation was  continued.  But  now  these  blanks  and  letters 
were  handed  by  the  enlisted  men  to  their  company  commander 
and  upon  his  recommendation  the  men  were  then  considered 


322  HISTORY  OF  PERSONNEL 

by  his  superior  officers  and  finally  by  a  special  board  convened 
for  the  purpose. 

To  aid  in  standardizing  such  recommendations  of  company 
officers  the  rating  scale  was  introduced  as  an  element  in  the 
whole  procedure.  Up  to  this  time  it  had  been  used  exclusively 
in  selecting  candidates  within  the  officers'  training  camps  for 
commissions.  As  the  rating  scale  had  not  been  used  before 
except  within  the  training  schools  it  was  necessary  to  instruct 
officers  in  its  use.  For  this  purpose  representatives  of  the 
Committee  visited  each  camp  and  lectured  on  the  subject 
to  the  officers  in  groups  of  100  to  200.  The  printed  instruc- 
tions were  given  in  "Instructions  for  Selection  of  Candidates 
for  Officers'  Training  Camps"  (Form  CCP-201).  Extracts 
from  it  are  repeated. 

"Each  platoon  commander  will,  not  later  than  November 
24th  select  a  group  of  his  men  who  may  possibly  qualify 
as  candidates  for  the  Officers'  Training  Schools.  It  will, 
perhaps,  happen  that  about  one-fifth  of  the  men  will  fall 
in  this  group.  In  making  this  selection  there  should  be  con- 
sidered those  general  military  qualifications  which  .-ire  most 
essential  for  an  officer,  such  as  commanding  presence,  strong 
voice,  loyalty,  capacity  for  leadership  and  high  intelligence. 

"Special  Records  will  be  made  as  frequently  as  prac- 
ticable of  the  men  in  this  selected  group.  Pocket  Rating 
Cards  (Form  No.  C.  C.  P.  202)  for  making  these  records 
are  herewith  supplied,  and  additional  copies  may  be  re- 
ceived at  the  Division  Adjutant's  Office.  The  method  of 
using  the  card  is  explained  below. 

"Not  later  than  December  22nd  the  Company,  or  Bat- 
tery Commander,  making  use  of  the  reports  of  his  platoon 
commanders,  his  own  knowledge  of  the  men  and  their  edu- 
cational and  occupational  history  as  shown  by  the  Qualifica- 
tions Record  Cards  (Form  No.  C.  C.  P.-l)  will  select  to  be 
recommended  not  to  exceed  10  per  cent  of  the  men  in  his  unit. 
If  any  of  the  men  on  this  list  have  not  applied  previous  to 
November  30th,  they  should  be  encouraged  to  do  so.  The 
names  of  the  candidates  will  be  arranged  in  order  of  merit  on 
Form  No.  C.  C.  P.  203.  These  recommendations  will  pass 
through  Regimental  Headquarters  and  thence  after  any 
necessary  revision  through  Brigade  channels  to  Division 


OFFICERS'  TRAINING  SCHOOLS  323 

Headquarters.  In  accordance  with  the  Memorandum  of 
October  1st,  1917,  paragraph  6,  referred  to  above,  the  Divi- 
sion Commander  will  call  a  Board  of  three  officers  to  con- 
sider all  applications  and  select  and  designate  to  attend 
not  to  exceed  1.7  per  cent  of  the  enlisted  men  in  the  Divi- 
sion Cantonment.  The  application  of  any  man  disapproved 
by  any  intermediate  authority  before  reaching  the  Division 
Commander  will  not  be  considered  by  the  Board." 

The  instructions  continue  with  an  explanation  of  how  to 
make  out  a  rating  scale  and  how  to  rate  candidates  with  it. 

A  sample  copy  of  Form  CCP-203  as  used  in  this  connection 
is  reproduced  here,  see  Figure  14.  Accompanying  it  were 
applications  from  the  seven  enlisted  men  together  with  letters 
of  recommendation. 

Advantages  and  Disadvantages  of  the  Rating  Scale.  The 
rating  scale  provided  for  a  uniform  method  of  recommending 
candidates.  And  it  focused  attention  upon  the  five  principal 
qualifications  to  be  considered.  Too  often  men  are  considered 
only  in  terms  of  some  outstanding  quality  which  may  or  may 
not  be  favorable.  With  this  method  all  men  had  to  be  rated 
on  the  same  qualities  and  these  were  what  the  Army  considered 
most  important.  The  rating  scale  also  provided  a  method 
by  which  the  inequality  in  number  of  excellent  men  in  dif- 
ferent organizations  could  be  taken  into  account.  For  ex- 
ample, if  company  A  had  ten  excellent  men  and  company  B 
had  but  five  then,  if  twenty  were  recommended  in  both  com- 
panies, the  first  ten  in  company  A  could  receive  higher  scores 
than  the  last  fifteen  in  company  B. 

One  disadvantage  of  the  rating  scale  as  used  in  this  con- 
nection was  that  it  did  not  entirely  counteract  the  tendency 
to  rate  favorites  high  and  others  low.  It  is  probable  that  no 
scheme  in  existence  today  can  be  made  "fool-proof"  so  that 
"playing  favorites"  can  be  absolutely  eliminated.  A  second 
disadvantage  was  that  the  ratings  were  not  so  uniform  as  was 
expected.  In  other  words,  a  rating  of  70  did  not  represent 
an  equally  good  man  to  two  different  captains.  That  is,  of 
course,  the  weakness  of  all  rating  systems.  It  is  now  recog- 


324 


HISTORY  OF  PERSONNEL 


nized  that  sufficient  attention  was  not  given  to  instructing 
these  officers  and  from  experience  it  is  known  that  if  such  had 
been  done  a  more  uniform  result  could  have  been  obtained. 

Further   Procedure    in   Selecting    Candidates.      In    several 
camps,  because  of  the  above  difficulties,  candidates  were  per- 

REPORT  OF  COMPANY  AND  BATTERY  COMMANDERS  OF  CANDIDATES 
•  ^."      FOR  OFFICERS  TRAINING  SCHOOLS 

Company  o»  B.imy_.        ..C/! Sputureof 


/(/}.  /&yrre.*&<,    Jf. 


£4**,    */*  'ZL^S 


tt 


2Z 


/K,,~,/~4*J  <rr,J*A?.  X-ttS 


7T7^ 


FIG.  14 
Rating  Scale  for  Candidates,  O.T.C.   (CCP-203) 

sonally  examined  by  the  final  board.  In  the  words  of  one 
commanding  general  "the  Divisional  Board  was  directed  to 
base  its  determination  as  to  soldierly  appearance,  bearing,  etc., 
upon  an  actual  inspection  of  the  candidates  whose  names  were 
submitted  by  the  units.  The  inspection  consisted  of  having 
each  candidate  approach  the  Board,  halt  at  six  paces,  salute 
and  remain  at  attention  until  the  fate  of  the  candidate  was 
determined.  The  candidates  were  formed,  for  this  purpose, 
in  line  and  were  told  off  from  the  right.  The  practice  was  to 
determine  that  the  candidate  was  qualified  in  the  inspection 
mentioned,  was  disqualified  or  that  his  case  was  doubtful.  The 
doubtful  cases  were  constituted  of  those  men  concerning  whom 
the  Board  was  not  unanimous.  In  that  manner  cases  No.  1 


OFFICERS'  TRAINING  SCHOOLS  325 

and  No.  2  were  very  promptly  disposed  of.  The  doubtful  cases 
were  directed  to  form  in  another  part  of  the  field.  It  was 
found  that  these  cases  consisted,  for  -the  most  part,  of  men 
who  might  be  classed  as  follows: 

(a)  Regimental  and  battalion  rion-commissioned  offi- 
cers of  long  service,  but  who  were  disqualified  by  reason 
of  lack  of  force,  military  bearing  or  other  martial  qualities 
and  whose  names  were  evidently  submitted  in  recognition 
of  their  faithful  service. 

(b)  Men  of  insufficient  general  education,  the  ear- 
marks of  which  were  evidenced  in  their  deportment,  bear- 
ing or  speech. 

(c)  Those  possessing  shortcomings  of  phjsique,  pres- 
ence or  manners  which  would  constitute  serious  defects 
in  an  officer. 

"Of  the  doubtful  cases  some  were  promptly  disqualified 
upon  closer  observation;  others  were  promptly  qualified  upon 
such  observation,  and,  as  to  the  remainder,  the  Board  con- 
tinued its  work  the  following  day." 

This  procedure  undoubtedly  resulted  in  weighting  the  item 
"Physical  Qualities"  of  the  rating  scale  far  more  than  any 
other.  Possibly  this  was  wise.  Judging,  however,  from  ex- 
perience in  employment  work,  particularly  in  selecting  sales- 
men, one's  estimate  of  a  man  on  the  basis  of  his  appearance  is 
not  so  reliable  as  to  hire  him  on  the  basis  of  an  intelligence 
test.  And  this  fact  was  realized  in  the  officers'  training  camps 
when  it  was  found  that  most  men  of  "A"  and  "B"  intelligence 
were  commissioned  while  considerably  less  of  "C-(-"  men,  only 
half  of  "C"  men  and  very  few  of  "C—  "  men  were  commis- 
sioned. So  impressed  were  several  commanding  officers  of 
training  camps  of  this  fact  that  they  refused  to  accept  men 
for  the  fourth  series  who  did  not  grade  "C"  or  better  in  the 
intelligence  test. 

In  some  camps  the  rating  scale  was  used  much  more  as  the 
basis  for  selection  than  indicated  in  the  above  report.  For 
example,  "in  the  observation  batteries,  the  Scott  rating  scale 
was-  the  main  basis  for  determining  whether  a  candidate  en- 


326  HISTORY  OF  PERSONNEL 

tered  the  School;  the  one  additional  requirement  was  satis- 
factory work  in  the  mathematics  course." 

Summing  up  this  discussion  it  may  well  be  questioned 
whether  any  other  plan  of  weighing  qualities  for  a  prospective 
officer  is  superior  to  that  outlined  in  the  rating  scale  where 
ph3'sical  qualities,  intelligence,  leadership,  personal  qualities 
and  general  value  to  the  service  are  all  considered. 

Selecting  Civilians  for  the  Central  Officers'  Training 
Schools.  In  order  to  select  civilians  "in  as  careful  manner  as 
possible  the  rating  scale  was  introduced  into  the  procedure." 
"Civilians  possessing  the  requisite  qualifications  as  to  educa- 
tion, character  and  physique,  who  desire  to  attend  an  Officers' 
Training  School  will  apply  for  information  and  necessary 
blank  forms  to  the  army  officer  on  duty  as  professor  of  military 
science  and  tactics  at  the  educational  institution  nearest  the 
residence  of  the  applicant.  This  may  be  done  either  in  person 
or  in  writing.  The  application  and  other  blank  forms  fur- 
nished must  be  filled  out  in  detail  and  must  be  accompanied 
by  at  least  three  testimonials  by  reputable  persons  as  to  good 
character,  and  a  record  of  the  physical  examination  of  the 
applicant,  submitted  on  prescribed  form  and  made  by  a  reput- 
able physician.  The  application  and  accompanying  papers 
will  then  be  forwarded  to  the  officer  of  the  Army  on  duty  as 
professor  of  military  science  and  tactics  at  an  educational 
institution  nearest  the  residence  of  the  applicant.  Upon 
receipt  of  the  application  and  necessary  papers,  each  appli- 
cant will  be  notified  to  appear  in  person  at  his  own  expense, 
at  an  appointed  time,  before  such  professor  of  military  science 
and  tactics,  for  a  preliminary  examination,  regarding  the 
applicant's  qualifications  to  attend  an  Officers'  Training 
School."  (Letter  from  The  Adjutant  General,  June  27,  1918.) 
The  results  of  this  personal  examination  were  expressed  by 
use  of  the  rating  scale.  Letter  of  The  Adjutant  General 
(April  18,  1918)  explains  that  "some  of  the  applicants  may 
be  strangers  to  you.  In  such  instances  you  will,  of  course, 
make  use  of  the  judgments  of  those  who  know  the  candidates 


OFFICERS'  TRAINING  SCHOOLS  327 

in  estimating  Physical  Qualities,  Intelligence,  Leadership, 
etc." 

Patriotism  as  a  Factor  in  Selecting  Candidates.  The  fol- 
lowing extract  of  a  report  from  a  personnel  supervisor  illus- 
trates another  interesting  phase  of  the  problem  of  selecting 
candidates  for  an  officers'  training  school.  "One  of  the  most 
significant  indications  of  the  spirit  of  the  command  that  I 
found  at  Camp  Wadsworth  was  that  many  of  the  most  promis- 
ing enlisted  men  would  not  commit  themselves  to  entering  the 
Third  Training  Camp  for  Officers  unless  they  were  assured 
that  the  Training  Camp  would  accompany  the  Division  if  it 
moved  for  foreign  service,  preferring  to  remain  as  enlisted 
men  with  active  service  abroad  to  remaining  home  as  possible 
officers.  This  was  very  pleasant  to  note,  and  in  consequence 
of  it  I  telegraphed  to  you  in  reply  to  which  I  received  from 
Major  Clark  of  the  War  Department  a  telegram  assuring  me 
that  the  Training  Schools  formed  an  integral  part  of  the  Divi- 
sion and  would  go  or  stay  with  the  Division.  This  met  the 
situation  and  was  received  with  much  satisfaction." 

Selecting  Candidates  from  The  Students'  Army  Training 
Corps.  The  procedure  to  have  been  followed  in  the  units  of 
the  Students'  Army  Training  Corps  by  which  college  students 
would  have  been  selected  for  officers'  training  camps  and  also 
the  method  by  which  they  would  have  been  distributed  among 
the  various  corps  and  branches  of  the  service  is  outlined  in 
Chapter  4*1  of  this  volume  and  Chapter  XIII.  of  Volume  II. 

SELECTING  CANDIDATES  AT  OFFICERS'  TRAINING 
SCHOOLS  FOR  COMMISSION 

Use  of  Rating  Scale.  As  has  been  brought  out  already  in 
Chapter  4,  the  rating  scale  was  introduced  into  the  Army  first 
of  all  in  connection  with  eight  of  the  Reserve  Officers'  Train- 
ing Camps  of  the  first  series.  It  was  used  in  all  the  camps 
and  schools  for  rating  candidates  thereafter. 


328  HISTORY  OF  PERSONNEL 

General  Procedure.  Instructions,  dated  October  16,  1918, 
concerning  the  grading  of  candidates  at  the  Field  Artillery 
Central  Officers'  Training  School  are  as  follows: 

"1.  The  candidate  is  graded  on  Technical  subjects  upon 
a  percentage  basis  of  100,  with  75  as  a  weekly  passing 
mark,  and  70  as  a  minimum  average  for  the  course  for 
graduation.  He  is  judged  monthly  under  the  Officers'  Rat- 
ing (Scott)  Scale  upon  the  five  essential  qualities  of  an  offi- 
cer. The  minimum  rating  for  graduation  is  50. 

"2.  The  relative  numerical  rank  of  the  graduate  in  the 
entire  class  is  based  upon  the  average  of  his  Technical  sub- 
jects grade  and  his  Essential  Qualities  rating. 

"3.  A  basis  of  weighting  each  of  the  fifteen  Technical 
subjects  was  worked  out,  to  be  applied  in  computing  the 
candidate's  grade  for  graduation.  This  was  fixed  primarily 
upon  the  number  of  hours  devoted  to  the  subject,  with  modi- 
fications dictated  by  consideration  as  to  the  relative  impor- 
tance of  the  subjects  as  field  artillery  essentials. 

"4.  Upon,  a  count  of  100,  the  weighting  is  as  follows: 
Administration,  2 ;  Care  and  Training  of  Horses,  5 ;  Com- 
munication, 6;  Conduct  of  Fire,  12;  Dismounted  Drill,  4; 
Driving,  6;  Field  Gunnery,  10;  Fire  Discipline,  10;  Gun 
Squad  Drill,  2;  Materiel,  7;  Pistol  Drill  and  Guard  Duty, 
2;  Reconnaissance,  10;  Re-drill,  12;  Riding,  2;  Topography 
and  Artillery  Boards,  10. 

"5.  The  School  uses  a  combined  qualification  and  final 
record  card,  8^x14  inches.  The  qualification  form  on  one 
side  of  this  card  is  an  adaptation  of  one  of  the  CCP  forms. 
It  is  filled  out  by  each  candidate  early  in  his  course,  under 
the  supervision  of  an  officer  who  is  responsible  for  its  accur- 
acy. On  the  other  side  of  the  card  is  the  final  record  of  the 
candidate  upon  which  entries  are  made  from  the  grade  and 
rating  sheets  weekly  in  the  Registrar's  office.  This  form 
presents  on  one  page  ratings  for  the  five  essential  qualities 
of  an  officer  and  grades  in  Technical  subjects." 

The  above  deals  with  the  method  of  grading  candidates  for 
scholarship,  military  training  and  personal  qualities.      Theyv< 
were  also   physically   examined   at  the  time  of  entering  the 
school  and  also  at  the  close.     Any  candidate  "who  evidences 
unfitriess  for  his  duties  by  reason  of  habits,  lack  of  character, 


OFFICERS'  TRAINING  SCHOOLS  329 

inefficiency,  or  who  is  guilty  of  misconduct"  was  promptly  con- 
sidered by  proper  officers,  a  board  of  officers  and  the  com- 
manding officer  before  whom  the  candidate  was  given  an  oppor- 
tunity to  appear  personally.  Those  considered  failures  were 
promptly  transferred  from  the  school. 

At  the  close  of  the  school  the  names  of  the  candidates  recom- 
mended for  commission  were  arranged  in  order  of  merit  from 
best  to  poorest  and  placed  upon  the  eligible  list. 


CHAPTER  27 

USE   OF   LIMITED   SERVICE   MEN 
GENERAL  SURVEY  OF  THE  PROBLEM 

In  Industry.  A  considerable  percentage  of  all  workers  are 
physically  impaired  in  one  or  more  respects.  A  casual  inspec- 
tion of  the  working  force  of  any  large  factory  shows  a  sur- 
prisingly large  percentage  of  older  men,  those  lame  or  maimed 
through  loss  of  fingers,  eyes,  feet  or  limb,  or  defects  resulting 
from  birth,  accident  or  disease,  and  there  are  others  equally 
handicapped  by  chronic  sickness  or  organic  troubles  not  out- 
wardly apparent,  and  still  others  handicapped  by  inability  to 
speak  or  read  and  write  English  or  who  may  unfortunately 
be  of  low  intelligence.  When  such  defects  were  very  apparent, 
or  where  the  character  of  work  was  severe  in  various  ways, 
the  failure  of  such  men  to  hold  up  quickly  developed  their 
defects. 

For  ages  the  practice  has  been  to  give  a  man  a  job  and  a 
tryout  to  a  considerable  extent  irrespective  of  his  physical 
condition.  If  he  failed  to  perform  to  the  satisfaction  of  his 
boss  or  foreman  he  was  fired,  when  only  too  frequently  his 
failure  could  be  traced  to  physical  or  mental  limitations  un- 
suiting  him  for  the  particular  work,  yet  not  preventing  his 
working  if  assigned  to  other  work  within  his  limitations. 

With  this  hit  or  miss  method  there  was  usually  no  court  of 
appeal,  and  the  man  moved  on  to  the  next  job,  which  by  pure 
luck  might  be  suitable.  In  this  manner  the  man  and  his  depen- 
dents were  made  to  suffer,  and  the  shop  or  factory  was  out 
of  pocket  to  the  extent  of  the  time  and  expense  involved  in  an 
effort  to  train  the  man  as  well  as  the  loss  of  total  product  and 
the  possible  inferiority  of  what  the  man  had  been  working  on. 

330 


USE  OF  LIMITED  SERVICE  MEN  331 

There  has  been  a  growing  feeling  that  this  system  was  de- 
fective and  in  recent  years  industry  has  come  to  recognize  that 
a  better  method  could  and  should  be  employed.  Scattered 
efforts  have  been  made  to  utilize  scientifically  men  who  are  not 
of  the  highest  physical  condition  or  are  of  low  mental  -stan- 
dards ;  but  generally  the  old  system  prevails. 

Many  large  concerns  have  operated  Industrial  Services  or 
Employment  Departments  for  some  years.  These  began  in  a 
small  way  and  have  grown  rapidly,  until  in  some  cases  they 
are  one  of  the  most  important  departments  in  such  factories. 
Experience  in  such  instances  has  shown  material  benefits  in 
direct  returns  which  permeate  the  entire  organization,  and 
has  resulted  in  a  smoother  operation,  reduction  in  production 
costs  with  increased  output  that  would  be  impossible  with  the 
crude  methods  of  labor  procurement  formerly  employed  by 
nearly  every  one. 

In  fact  the  advantage  of  intelligent  or  plain  common  sense 
methods  of  procurement,  classification,  placement  and  promo- 
tion for  the  human  elements  of  the  machinery  of  manufacture 
are  so  self-evident  that  it  is  difficult  to  understand  why  they 
were  not  adopted  generally  long  ago,  or  why  they  are  not  now 
universally  employed. 

In  the  United  States  Army.  The  American  Army  was  a 
small  one  and  accepted  only  physically  fit  men  who  could  read 
and  write.  When  war  broke  out,  the  part  our  country  would 
play  before  a  settlement  could  be  reached  was  under-estimated. 

Starting  with  the  idea  that  we  were  to  have  a  relatively 
small  army  of  2,000,000  there  seemed  to  be  such  an  unlimited 
supply  of  men  to  draw  from,  that  in  the  early  stages  we 
started  to  use  only  men  of  an  exceptionally  high  physical  stan- 
dard, i.  e.,  the  Regular  Army  standard. 

With  the  Selective  Draft  system  in  full  swing,  it  began  to 
be  realized  that  our  physical  standards  were  too  high  and  we 
were  falling  short  in  numbers.  Again  the  highly  technical 
character  of  modern  warfare  was  not  realized.  This  increased 
specialization  almost  daily  through  the  introduction  of  vastly 


332  HISTORY  OF  PERSONNEL 

extended  use  of  airplanes,  motor  transport,  new  and  heavy 
types  of  ordnance,  gas  warfare  and  other  novel  elements.  Plans 
based  on  the  experience  of  previous  wars  fought  by  infantry 
and  a  limited  artillery  of  small  calibre  no  longer  held.  We 
had  to  learn  it  all  over  and  continually  modify  views  and 
change  plans  while  under  way. 

Through  all  this,  however,  was  an  undercurrent  and  growing 
feeling  that  we  were  not  utilizing  man  power  to  the  best  ad- 
vantage, and  that  sooner  or  later  our  seemingly  unlimited  sup- 
ply of  men  would  give  out  and  we  must  begin  to  adopt  the 
French  and  English  experience  of  conserving  our  man  power 
in  every  way.  Even  if  our  supply  had  been  truly  unlimited, 
growing  industrial  needs  at  home,  and  the  extravagant  plan  of 
retaining  tens  of  thousands  of  strapping,  perfectly  fit  men  in 
non-combat  positions  in  this  country  or  behind  the  lines  over- 
seas became  more  and  more  apparent. 

The  idea  was  new  to  many,  however,  and  while  here  and 
there  this  urgent  need  was  recognized,  and  individuals  in 
various  army  organizations  were  earnestly  advocating  action, 
it  took  time  to  work  through  the  mass  and  produce  a  majority 
sentiment  in  favor  of  a  broad  general  policy. 

It  was,  therefore,  June,  1918,  before  a  draft  call  was 
issued  for  limited  service  men.  The  real  beginnings  of  the 
deviation  from  a  general  service  physical  standard,  however, 
date  from  the  opening  of  a  camp  at  Syracuse,  N.  Y.,  on 
July  29,  1918,  and  the  three  draft  calls  in  August  and  Sep- 
tember issued  to  fill  that  camp  with  limited  service  men. 

In  the  British  Army.  It  is  a  curious  commentary  on  the 
American  psychology  to  note  that  the  British  had  a  fully 
developed  and  successful  system  for  the  use  of  partially  unfit 
men  in  operation  all  this  time.  While  it  was  not  completely 
applicable  to  the  condition  in  the  United  States,  yet  it  could 
have  been  adopted  in  large  part,  thereby  utilizing  the  prac- 
tical experience  of  others  without  the  necessity  of  going 
through  it  all  ourselves  with  the  incident  expense  and  delay. 

In  the  British  system,  from  an  early  date  all  men  on  their 


USE  OF  LIMITED  SERVICE  MEN          333 

first  medical  examination,  and  from  time  to  time  subsequently 
as  necessity  arose,  were  classified  in  accordance  with  a  definite 
graded  standard.  At  first,  the  volunteers  were  held  up  to  a 
very  high  physical  standard,  but  as  call  after  call  came,  -and 
munition  production  began  to  be  affected,  it  was  evident  some 
system  of  economizing  man  power  must  be  adopted.  Looking 
ahead,  those  responsible  for  furnishing  enlargements  and 
replacements  realized  that  complete  failure  would  follow,  un- 
less something  were  done  to  increase  the  number  of  effective 
men  at  the  front. 

A  careful  study  of  the  whole  subject  was  made  by  the 
various  arms  of  the  British  service  in  close  co-operation,  and 
a  very  complete  system  of  physical  classification  was  per- 
fected. With  its  application  increasing  thousands  of  men  were 
drawn  into  the  service  from  civil  life  and  put  to  work  in  a 
multitude  of  places  on  a  wide  variety  of  work,  thereby  liberat- 
ing an  equal  number  of  physically  fit  men  for  combat  service  in 
the  trenches.  Still  others  found  duties  immediately  behind  the 
line,  or  in  the  service  of  supply  where  physical  strength  or 
fitness  was  less  essential. 

These  exchanges  and  transfers  extended  over  a  considerable 
period  and  caused  some  confusion  and  many  complaints,  but 
the  system  was  ultimately  worked  out  and  was  operating  per- 
fectly over  a  considerable  period  of  the  war. 

The  English  system  of  classifying  men  for  combat  or  other 
service  depending  upon  their  physical  condition  and  use  in  in- 
dustry or  specialized  units  was  well  worked  out.  Eventually 
when  the  American  classification  had  been  developed,  the  two 
showed  striking  points  in  common  The  system  proved  of 
inestimable  value  in  enlarging  the  army  to  an  impressive  extent 
and  prevented  an  industrial  chaos  so  far  as  Great  Britain  was 
concerned. 

DEFINITE  NEED  FOR  USING  LIMITED  SERVICE 

MEN 

Rapidly  succeeding  events  began  to  carry  home  the  fact 
that  we  were  involved  in  identical  problems  with  those  out- 


334  HISTORY  OF  PERSONNEL 

lined  above.  And  the  need  for  ever  increasing  numbers  of  men 
forced  us  to  lower  the  bars  of  physical  limitations.  The  effect 
of  calling  men  from  industry  began  to  be  felt.  All  this  com- 
bined pressure  forced  a  more  economical  use  of  man  power. 

Almost  from  the  appearance  of  the  first  draft  men  at  the 
camps,  notwithstanding  most  explicit  instructions  to  Draft 
Board  medical  examiners,  a  considerably  large  number  of  men 
of  decidedly  low  mental  order  slipped  through  the  various 
checks  and  began  to  arrive  at  the  camps.  There  were  several 
causes  for  this,  the  principal  ones  probably  being  the  varia- 
tion in  human  judgment  in  the  case  of  about  5,000  physicians 
scattered  over  the  entire  United  States  and  possessions,  the 
impossibility  under  the  stress  of  the  large  numbers  to  be 
handled  to  be  as  thorough  as  desired;  for  like  reason  the 
impossibility  of  standardizing  the  methods  of  all  the  examining 
physicians  involved;  and  finally  the  frequent  changing  or  sub- 
stitution of  new  examining  physicians  to  take  the  places  of 
those  who  had  finally  acquired  a  thorough  working  knowl- 
edge of  the  established  physical  standards.  Such  substitutions 
became  increasingly  frequent  as  more  and  more  doctors  volun- 
teered, or  were  themselves  inducted  to  serve  in  medical  units 
here  and  abroad. 

As  the  physical  standards  furnished  to  the  Draft  Boards 
were  lowered  to  meet  the  increasing  demand  for  men,  more 
of  such  partially  defective  and  unsuitable  men  began  to  ac- 
cumulate. Such  men  being  unfit  for  overseas  service,  and 
there  being  no  adequate  nor  standard  plan  for  handling  them, 
a  serious  problem  arose.  Housing  space  was  being  occupied, 
subsistence  consumed  and  training  was  being  retarded,  be- 
sides the  lowering  effect  on  the  general  morale  of  the  camps. 
Further,  as  divisions  were  completed  and  moved  out  for  trans- 
portation overseas,  it  became  common  practice  to  discard 
everyone  not  physically  fit  for  any  class  of  overseas  service. 
This  inheritance  of  "lame,  halt  and  blind,"  figuratively  speak- 
ing was  left  to  occupy  necessary  barrack  space  and  eat  its 
head  off. 


USE  OF  LIMITED  SERVICE  MEN  335 

PHYSICAL  CLASSIFICATION  OF  MEN  IN  SELECTIVE 
SERVICE  REGULATIONS 

Fortunately  the  men  responsible  for  framing  the  Selective 
Draft  Law  appreciated  the  possibility  of  ultimately  using  men 
of  less  than  the  highest  physical  type,  and  wrote  into  that 
law  a  section  providing  authority  which  afterwards  formed 
the  basis  of  a  plan  which  solved  many  of  the  vexatious  ques- 
tions, and  would  have  ultimately  proven  a  complete  remedy. 
The  law  reads  as  follows: 

Section  128^  The  Selective  Service  Draft  Law  pro- 

See  also  Special  provides  for  the  physical  classifica- 

Regulations  No.  65  tion  of  all  registrants  under  two 
general  headings  "Accepted"  or  "Rejected."  Under  Ac- 
cepted there  are  three  subdivisions  termed  Group  A,  B,  and 
C.  Group  D  applies  only  to  those  rejected  for  any  or  all 
physical  or  mental  causes. 

In  broad  classification,  apart  from  the  many  details  re- 
quired for  a  clear  selection  of  men,  these  several  groups 
are  outlined  thus. 

Group  A — Accept  the  registrant  as  physically  qualified  for 
general  military  service. 

Group  B — Accept  the  registrant  as  physically  qualified  for 
military  service  when  cured  of — (naming  remediable  defect 
for  which  acceptance  is  authorized).     Remediable  Group. 
Group  C — Accept  registrant  as  physically  qualified  for  spe- 
cial or  limited  military  service  in  a  named  occupation  or 
capacity. 
Group  D — Reject  the  registrant. 

Until  about  June,  1918,  all  Group  B  and  C  men  appearing 
at  camps  on  general  draft  call  were  ordered  returned  to 
Local  Boards  and  presumably  only  Class  A  men  were  retained 
and  credited  against  the  quota  of  Local  Boards  sending  de- 
fective men.  Such  Boards  were  then  required  to  send  addi- 
tional Group  A  men  to  complete  their  quotas. 

This  was  the  theory  at  least  in  practice.  But,  as  already 
explained,  many  physically  defective  men  got  to  camp  and 
were  retained.  Later,  orders  were  issued  permitting  camp 
commanders  to  retain  in  camp  men  of  Group  C  classification, 


336  HISTORY  OF  PERSONNEL 

provided  such  men  of  limited  physical  ability  were  needed 
and  could  be  profitably  employed. 

CLASSIFICATION  OF  LIMITED  SERVICE  MEN  IN 
THE  ARMY 

Authorization  of  Development  Battalions.  Classification 
of  all  phases  of  partially  unfit  men  was  accomplished  in  con- 
nection with  the  authorization  of  development  battalions.  This 
subject  is  discussed  at  some  length  in  Chapter  40. 

Original  System  of  Classification.  The  Committee  on  Clas- 
sification of  Personnel  in  the  Army  was  early  drawn  into  the 
problem  through  its  functions  of  interviewing  recruits  and 
classifying  recruits  as  to  trade  or  other  ability.  To  the  Com- 
mittee it  had  long  been  evident  that  a  mere  physical  classifica- 
tion of  men  other  than  those  fit  for  any  character  of  service, 
Group  A,  was  inadequate,  as  in  like  manner  the  mere  cold 
statement  of  a  man's  trade  experience  and  occupational  classi- 
fication was  equally  incomplete  without  a  statement  as  to  his 
physical  make-up. 

Industrial  experience  in  civil  life  preceding  the  war  had 
shown  that  a  man  physically  or  mentally  deficient  was  a  three- 
sided  being  made  up  of  three  factors:  physical,  mental  and 
trade  ability.  These  factors  differed  in  each  individual.  Two 
men  of  equal  physical  make-up  would  differ  in  mental  and 
trade  ability  or  both,  and  conversely  two  men  of  equal  trade 
and  mental  ability  would  differ  physically.  In  other  words, 
all  three  factors  must  be  carefully  considered  in  selecting  a 
Limited  Service  Man.  Still  further  the  ultimate  assignment 
of  such  a  man  was  affected  by  the  particular  service  or  branch 
of  the  Army  to  which  he  was  to  be  assigned.  To  illustrate, 
simply  patrol  guard  duty  in  the  capacity  of  a  watchman 
could  readily  be  performed  by  men  of  relatively  low  physical 
status,  but  if  the  patrol  service  were  to  be  in  connection  with 
a  warehouse  or  dock  in  a  low  wet  location,  men  with  rheumatic 
tendencies  would  quickly  fail  and  become  hospital  patients, 
and  hence  a  dead  load  and  expense.  However,  had  men  with 


USE  OF  LIMITED  SERVICE  MEN          337 

other  defects,  such  as  fingers  missing,  faulty  sight  in  one  eye 
or  the  like,  been  selected  for  this  particular  service  they  could 
perform  their  duties  properly  and  continuously.  Like  in- 
stances could  be  multiplied,  but  this  one  brings  out  the  neces- 
sity of  close  cooperation  between  the  medical  department  and 
those  handling  the  personnel  phases.  These  latter  include 
determining  trade  ability  and  other  phases  not  distinctly 
medical  such  as  draft  evaders,  conscientious  objectors,  morally 
unfit,  etc. 

Apparent  economy  in  man  power  will  be  decidedly  decep- 
tive, however,  if  an  offsetting  expense  is  required  to  collect, 
investigate,  train,  or  insure  and  take  care  of  a  largely  in- 
creased volume  of  hospital  or  convalescent  cases.  The  Army 
could  not  afford  to  take  on  the  character  of  a  "sanitarium" 
for  rebuilding  the  entire  manhood  of  the  country  no  matter 
how  desirable  this  might  be. 

It  is  of  first  importance  that  no  men  be  retained  whose 
limitations  are  such  as  to  cause  frequent  breakdowns  under 
normal  assignments.  Many  men  can  work  at  their  trades 
under  civil  conditions  but  fail  utterly  under  the  rougher  con- 
ditions of  actual  field  service,  yet  these  very  men  could  work 
in  a  base  shop. 

A  physical  examiner  might  find  that  a  man  had  serious  flat 
feet.  Unquestionably  such  a  man  could  not  carry  a  pack  and 
stand  long  marches,  therefore,  he  would  be  rejected.  But 
the  personnel  officer  would  find  he  had  been  earning  his  living 
for  several  years  in  civil  life  as  a  truck  driver,  a  clerk,  or  a 
machinist.  And  there  are  many  places  in  the  Army  where  such 
men  could  be  used.  There  are  many  organizations  requiring 
clerks,  but  in  some  of  these  marching  is  required;  in  others, 
such  as  for  instance  the  quartermaster  warehouses,  no  march- 
ing is  to  be  expected,  hence  the  above  described  man  could 
be  assigned  to  this  organization  with  the  assurance  that  he 
could  function  continuously.  To  make  these  examinations  and 
assignments  requires  the  work  of  competent  personnel  men. 

From  the  foregoing  it  is  very  evident  that  a  mere  physical 


338  HISTORY  OF  PERSONNEL 

classification  by  surgeons  or  medical  officers  is  inadequate. 
In  addition  and  equally  important,  is  the  personnel  side  in- 
cluding such  phases  as  careful  investigation  of  kind,  character 
and  location  of  previous  work,  actual  trade  ability,  and  the 
character  and  condition  of  service  where  the  man  will  be  ulti- 
mately assigned. 

Investigations  and  studies  by  the  Committee  on  Classifica- 
tion of  Personnel  in  the  Army,  in  cooperation  with  the  Surgeon 
General's  Office  and  the  Operations  Division  of  the  General 
Staff,  resulted  in  a  graded  physical  classification  which  was 
adopted  for  classifying  Limited  Service  men.  This  was  pro- 
mulgated as  part  of  General  Orders  No.  45,  1918,  establish- 
ing Development  Battalions  (see  instructions  concerning  oper- 
ation of  Development  Battalions,  Circular,  War  Department 
No.  812,  of  July  12,  1918.) 

In  this  an  effort  was  made  to  embody  the  Physical  Classifi- 
cation of  the  Surgeon  General  for  general  Army  use,  the 
"Grouping"  used  by  the  Provost  Marshal  in  selecting  men 
through  the  draft,  and  such  features  of  the  British  system  and 
other  elements  as  seemed  desirable.  The  classification  adopted 
is  as  follows: 

CLASS  A :  Fit  physically  for  general  military  service. 

CLASS  B:  Not  quite  fit  physically  for  general  military, 
but  free  from  organic  diseases ;  able  to  do  an  average  day's 
work ;  able  to  walk  5  miles ;  to  see  and  hear  well  enough 
for  ordinary  purposes;  able  to  perform  duty  equivalent  to 
garrison  duty;  labor  battalion,  shop  work  (in  a  trade)  at 
home  or  abroad,  or  combat  service  at  home  (U.  S.  Guards.) 

CLASS  C:  Fit  only  for  duty  in  a  selected  occupation  or 
a  restricted  capacity  to  which  they  must  be  limited. 

Soldiers  in  Class  C  have  more  serious  disabilities  and 
must  be  considered  individually.  When  it  is  clear  that  the 
physical  disability  of  a  soldier  is  of  sufficient  severity  to 
exclude  him  from  Class  A  or  B,  yet  the  surgeon  believes  that 
this  disability  is  not  of  too  great  severity  to  prevent  his  re- 
tention in  the  service  for  duty  in  a  special  capacity,  he  will 
consult  the  soldier's  "qualification  card,"  note  the  occupa- 
tions in  which  qualified,  and  direct  the  personnel  adjutant, 


USE  OF  LIMITED  SERVICE  MEN  339 

as  custodian  of  all  personnel  records,  to  indorse  on  the 
card  in  the  case  of  each  named  occupation,  the  medical 
officer's  opinion  as  to  whether  or  not  the  soldier  can  safely 
be  employed  in  the  named  occupations,  and  whether  the 
disability  prevents  the  soldier  being  100  percent  physically 
efficient  in  the  occupations  named  on  the  card.  If  not  100 
percent  physically  efficient  the  percentage  of  efficiency  will 
be  noted.  Unless  a  soldier  is  80  percent  or  more  efficient 
in  at  least  one  trade  he  should  not  be  retained  in  the  serv- 
ice. For  example,  a  man  might  have  asthma  and  previous 
civil  experience  showed  he  lost  on  an  average  of  five  or  six 
days  per  month  from  work.  On  this  account  he  could  be 
regarded  as  only  80  percent  efficient. 

CLASS  D:    Physically  unfit  for  any  military  service. 

It  will  be  noticed  that  the  classes  outlined  refer  to  the 
physical  side  only.  To  combine  and  include  purely  per- 
sonnel and  other  essential  phases  such  as  mentality,  intelli- 
gence, and  moral  aspects,  a  system  of  rating  was  added. 

RATING  1  is  the  designation  employed  to  indicate  that 
a  man  is  physically  classed  by  the  surgeon  as  "A"  and  that 
he  is  considered  by  the  commanding  officer  satisfactory 
mentally  and  morally,  and  from  all  other  standpoints  is 
regarded  as  acceptable  for  any  character  of  general  mili- 
tary service. 

RATING  2  is  used  to  designate  those  whom  the  com- 
manding officer  regards  as  hardly  suited  for  Rating  1. 
This  includes  men  classed  by  the  surgeon  as  physically  "A", 
yet  found  lacking  in  other  respects ;  as,  for  instance,  of 
uncertain  ability  to  speak,  read  and  write  English,  or  of 
slow  mentality.  It  also  includes  men  classed  physically 
as  "B",  i.  e.,  "not  quite  fit  for  general  military  service", 
and  free  from  serious  organic  disease,  but  otherwise  com- 
petent and  most  desirable.  These  may  be  used  for  any 
domestic  and  any  but  the  heaviest  combat  service  (overseas). 

RATING  3  designates  all  those  clearly  unsuited  for 
ratings  1  and  2,  yet  of  such  physical  classification  ("B"  or 
"C")  that  they  could  be  utilized,  and  whose  other  charac- 
teristics may  or  may  not  be  of  the  highest,  yet  are  such  as 
to  warrant  the  retention  of  these  men  for  restricted  limited 
domestic  service. 

Revised  System  of  Classification.     Subsequent  experience 
developed  a  close  cooperation  between  the  medical  and  per- 


340 HISTORY  OF  PERSONNEL 

sonnel  officers  affecting  desired  results  and  this  combined 
form  of  classification  or  rating  was  superseded  by  Circular  No. 
7,  War  Department,  1918,  as  follows: 

"1.  For  the  purpose  of  making  the  physical  classifications 
used  in  Development  Battalions  correspond,  as  far  as  pos- 
sible, with  groups  as  established  under  Special  Regulations 
No.  65,  the  following  revision  of  Physical  Classification  for 
Development  Battalions  is  hereby  established. 

CLASS  A :  Fit  for  general  military  service. 

CLASS  B:  Deferred  remediable;  fit  for  general  military 
service  when  cured  of . 

CLASS  C-l:  Limited  service,  general;  not  quite  fit 
physically  for  general  military  service,  but  fit  for  military 
service  in  the  Service  of  Supplies  overseas,  or  general  mili- 
tary service  in  the  United  States  only. 

CLASS  C-2:  Limited  service,  special;  fit  only  for  re- 
stricted military  service  in  the  United  States  in  special 
capacity  approved  by  medical  officer. 

CLASS  D:  Unfit  for  any  military  service. 

"2.  Tables  indicating  correspondence  of  various  physi- 
cal classes  or  groups  between  that  employed  by  the  Provost 
Marshal  in  selecting  the  draft,  the  system  first  employed 
in  Development  Battalion  and  the  revised  system  in  force 
on  Nov.  11,  1918. 

Physical 
groups  as 

Physical  classes  established  Previous  physical  classes  and        given  in 

herewith  ratings  in  development  Special 

battalions,  Document  812  Regula- 

tions No.  65 


Class  A     Physical  Class  A,  Rating  1        Group  A 

Class  B     Group  B 

Class  C-l Physical  Class  B,  Rating  2  or  3  Group  C 

Class  C-2 Physical  Class  C,  Rating  2    or  3    Group  C 

Class  D     Physical  Class  D Group  D 

"3.  From  the  foregoing  it  will  be  seen  that  former  phys- 
ical Class  B  men  will  hereafter  be  classified  as  C-l,  and 
former  physical  Class  C  men  will  hereafter  be  classified  as 
C-2. 

"4.  A  new  Class  B  is  established,  which  is  identical 
with  Group  B  described  in  Special  Regulations  No.  65. 


USE  OF  LIMITED  SERVICE  MEN  341 

"5.  Former  ratings  will  no  longer  be  used,  and  those 
portions  of  War  Department  Document  812  relating  there- 
to are  hereby  revoked.  Form  CCP-601  will  be  continued 
in  use,  and  will  be  modified  in  accordance  with  the  above 
instructions. 

"6.  The  classification  of  all  men  in  development  bat- 
talions will  be  done  by  the  closest  co-operation  between  the 
medical  and  personnel  officers,  and  will  be  based  on  the 
physical,  mental  and  occupational  qualifications  of  each 
man." 

Paragraph  5  above  discontinued  the  use  of  Ratings.  The 
idea  back  of  this  plan  to  combine  physical,  mental  and  moral 
disqualifications  and  rate  the  men  in  accordance  with  all  three 
was  excellent.  But  in  practice  the  man  had  to  be  transferred 
in  terms  of  all  three  phases  and  the  rating  covered  them  up. 
For  example,  a  physically  fit  man  but  unable  to  speak  English 
must  be  handled  very  differently  from  a  chemist  with  a  bad 
heart  although  both  would  have  been  rated  the  same. 

This  plan  constituted  the  basis  for  selection  and  assignment 
of  Limited  Service  men  on  November  llth,  when  mobilization 
operations  ceased. 

PERSONNEL  SPECIFICATONS,  OUTLINING  THE  USE 
OF  LIMITED  SERVICE  MEN 

In  the  practical  use  of  men  for  Limited  Service  duties  there 
still  continued  difficulties  in  assignment  and  come-backs  be- 
cause of  a  lack  of  understanding  of  the  actual  conditions  under 
which  men  could  be  called  upon  to  work.  Men  physically 
faulty,  yet  able  to  work  under  certain  conditions,  were  fre- 
quently assigned  to  other  tasks  or  proper  tasks,  but  under 
wrong  conditions.  This  resulted  in  some  dissatisfaction  and 
break-downs,  and  hence,  to  some  extent,  defeated  the  purpose 
of  the  use  of  limited  service  men. 

It  became  increasingly  evident  that  a  more  definite  guide 
was  needed  to  insure  proper  assignment.  To  correct  this  de- 
fect the  Committee  on  Classification  of  Personnel  started  the 
preparation  of  Personnel  Specifications  which  would  show 


342 


every  position  in  each  organization  of  the  Army  which  could 
be  filled  by  limited  service  men  and  the  limiting  physical  dis- 
abilities. 

With  these  tables,  the  personnel  adjutant  could  at  once 
select  a  limited  service  man  who  was  within  the  limitations, 
or  while  of  lower  physical  class  yet  did  not  have  defects 
which  would  certainly  cause  failure,  for  a  particular  job. 
For  instance ;  in  the  case  of  the  Headquarters  and  Supply  Sec- 
tion of  a  Field  Signal  Battalion  there  are  specified  by  the 
Tables  of  Personnel  Specifications  (No.  23). 

2  Sergeants,  First  Class: 

1  as  Sergeant  Major General  Clerical  Worker 

1  Jour.  38g 

Chief  Clerk  of  battalion  office.  Supervises  preparation 
and  filing  of  reports,  returns,  correspondence,  and  orders. 
Knowledge  of  typewriting  preferred. 

To  this  would  be  added  the  following: 

Limited  Service  permissible.  Must  have  use  of  both 
hands  and  be  able  to  walk.  Should  have  fair  eyesight 
and  good  hearing,  and  free  from  serious  functional  dis- 
order, etc.  (these  paragraphs  being  carefully  worked  up 
.  by  trade  specialists  in  conference  with  medical  officers). 

The  same  method  would  be  followed  throughout  all  organiza- 
tions. Where  it  was  not  specified  that  limited  service  men 
could  be  used  it  would  be  understood  that  only  men  fit  for 
general  military  service  could  be  utilized. 

This  plan  would  materially  assist  personnel  adjutants  and 
unit  commanders  in  placing  men,  and  would  tend  to  reduce 
errors  of  judgment  or  wrong  assignments  due  to  inexperience 
and  ignorance  of  conditions  to  be  encountered  under  service 
conditions. 

Another  form  suggested  is  an  assignment  chart  based  on 
the  British  forms,  but  simplified  to  a  more  compact  and  work- 
able form. 


USE  OF  LIMITED  SERVICE  MEN  343 

PLACEMENT  OR  ASSIGNMENT  CHART 

for 
LIMITED  SERVICE  MEN 


<a 
I 

z 

"5 

—     Character  of  Service 

o 
ft 

E                   S 

>>                                                                                                  m 

Specifications 

D 

• 

^ 

a 

h 
O 

e 
•O 
a 

ecu  patio 

O 

d 

ombat 

•0 
<o 

m 

1 

t  Home 

"5  *^ 

o   d 

SI 

ersonnel 

o 

o 
si 

& 

O 

< 

O 

M 

« 

1 

Pi  d 

Hi 

p 

Accountant  CPA  37ac  -  —  C-2  C-2  Like  civilian  10, 15, 22, 

service,  able  47,  etc. 
to  walk 

Auditor  37au  -  -  C-2  C-2  Like  civilian  10, 15, 22, 

service,  able  47,  etc. 
to  walk 

Comptroller  37c    •  -  C-2  C-2  Like  civilian  12,  15, 20, 

service,  able  49,  etc. 
to  walk 

Cost  Accountant    37co  -  -  C-2  C-2  Like  civilian  12, 15, 20, 

service,  able  49,  etc. 
to  walk 

General  37g  -  -  C-2  C-2  Like  civilian  1,2,3,4, 

service,  able  8, 10,  etc. 
to  walk,  no 
functional  defects 

Statistician  37-s  -  -  C-2  C-2  Like  civilian  4,5,  6, 

occupation     7,  etc. 
Acetylene  Gas 

Comp.  Operator     69c  -    C-l     C-2  C-2  Both  hands     10,11,12, 

able  to  work,  etc. 
around 
machinery 
Airplane  cloth 
worker  76ai      A      C-l,  etc.  11, 14, 17,  etc. 

Under  the  several  columns  grouped  under  "Character  of 
Service"  will  be  inserted  the  minimum  physical  class  possible 
to  be  used  for  the  respective  service,  i.e.,  combat  at  the  actual 


344  HISTORY  OF  PERSONNEL 

front;  behind  the  front  but  reasonably  close  thereto;  at  base 
shops,  headquarters  well  behind  the  lines ;  and  at  home,  mean- 
ing for  the  several  varieties  of  service  in  the  United  States 
or  possessions  not  involved  in  actual  conflict. 

Under  the  heading  "Physical  Limitations"  should  be  a 
carefully  prepared  list  in  cooperation  with  field  medical 
officers  and  personnel  trade  specialists.  By  this  is  meant  such 
defects,  partial  or  complete,  as  would  prevent  reasonable  and 
normal  functioning  at  the  particular  trade  and  under  the  con- 
ditions usual  with  the  organizations.  The  samples  given  are 
only  suggestive.  This  would  require  careful  study  by  trade 
experts  and  medical  officers. 

In  the  last  column  under  "Personnel  Specifications — Table 
Number"  would  be  listed  the  number  of  the  table  of  all  or- 
ganizations wherein  men  of  the  trade  and  physical  class  listed 
would  be  included.  The  numbers  listed  in  this  suggestive 
table  have  no  reference  to  any  existing  tables. 

Copies  of  this  chart  would  be  furnished  to  all  personnel 
adjutants,  medical  officers,  and  those  responsible  for  procure- 
ment, classification  of  men,  and  organization  of  units.  In  this 
way.  selection  and  permanent  and  successful  assignments  could 
be  made  in  the  first  instance  by  the  Personnel  Organization 
of  receiving  or  recruiting  depots,  camps,  or  training  stations. 

USE  OF  INTELLIGENCE  RATINGS 

A  start  was  made  to  determine  the  minimum  intelligence 
rating  which  would  warrant  the  army  in  retaining  (a)  Eng- 
lish-speaking men  who  could  not  read  or  write  and  (b)  non- 
English  speaking  illiterates.  Generally,  no  "D"  or  possibly 
no  "C-"  could  learn  to  read  and  write  within  two  months. 

There  are  many  other  phases  of  the  relationship  of  intelli- 
gence to  low  physical  classification  which  should  be  deter- 
mined in  order  that  men  who  could  not  possibly  qualify  for 
service  in  some  capacity  within  two  months  would  not  be 
permitted  to  clog  up  the  training  program,  but  would  be 
immediately  discharged. 


SECTION  VII. 
TRADE  TESTS 

This  section  relates  the  events  leading  up  to  the 
development  of  thoroughly  standardized  trade  tests 
(Chapters  28  and  29)  and  their  installation  and 
operation  in  the  camps  (Chapter  30.)  In  Chapter 
VI  of  Volume  II,  the  Personnel  Manual,  are  given 
the  operating  instructions  for  their  use  in  the  camps, 
and  reproductions  of  three  tests,  representing  the 
three  different  types  of  tests  developed. 


CHAPTER  28 
FORERUNNERS  OF  TRADE  TESTS 

TRADE  TESTS  AS  PART  OF  SCHEME  FOR 
OCCUPATIONAL  CLASSIFICATION 

The  need  for  trade  tests  of  some  sort  was  apparent  from 
the  beginning  of  the  Committee's  work.  The  classification  of 
soldiers,  when  they  first  came  into  the  National  Army  canton- 
ments on  September  6,  1917,  indicated  the  importance  of  occu- 
pational information  for  judicious  placement.  In  order  to 
secure  a  high  degree  of  accuracy  in  this  information  it  was 
necessary  that  interviewers  be  trained  to  question  recruits 
intelligently  and  to  judge  from  the  answers  received  just 
what  the  recruits  had  done  in  civil  life.  This  procedure  was 
begun  at  once.  The  Committee,  however,  hoped  to  create  an 
even  sounder  basis  for  placement.  Even  in  those  early  days, 
therefore,  consideration  was  given  to  the  introduction  of  trade 
tests  whereby  interviewers  might  determine  not  only  the 
civilian  occupation  of  each  recruit,  but  also  the  degree  of  skill 
which  the  recruit  possessed  in  that  occupation. 

There  was  another  early  problem  besides  that  of  increasing 
the  accuracy  of  the  interview  which  had  a  direct  bearing  upon 
the  later  work  of  the  Trade  Test  Division.  This  was  the  nec- 
essary definition  and  description  of  army  jobs.  What  kind 
of  skilled  workers  were  needed  in  the  various  military  units, 
and  how  should  they  be  distributed?  Until  questions  like 
these  were  answered — until  there  was  a  definite  idea  of  the 
nature  of  the  army's  needs  for  skilled  workers — the  results  of 
the  use  of  standardized  interviews  and  trade  tests  would  be  of 
questionable  value.  Out  of  this  need  grew  two  important 
works  of  the  Committee:  (1)  The  tables  of  occupational 

347 


548       .  HISTORY  OF  PERSONNEL 

needs  for  various  military  units,  and  (2)  the  trade  specifica- 
tions and  occupational  index.  The  first  of  these  is  described 
in  Chapter  14  and  the  second  in  Chapter  13.  Since  the  latter 
was  an  integral  part  of  trade  test  work,  certain  phases  of  it 
will  also  be  taken  up  here. 


While  the  germ  of  the  trade  test  idea  was  present  in  the 
army  personnel  system  from  the  start,  its  development  was  a 
gradual  process.  The  very  first  steps  taken  were  in  the  direc- 
tion of  preparing  trade  information  and  typical  questions  to 
be  put  in  the  hands  of  interviewers. 

The  main  sources  of  information  for  the  preparation  of 
these  aids  were  five  in  number:  Information  in  the  United 
States  Department  of  Labor,  Bureau  of  Statistics  and  the 
United  States  Employment  Service;  information  obtainable 
from  employment  managers  and  supervisors  of  training  in 
large  industrial  and  commercial  concerns ;  the  Civil  Service 
Commissions,  particularly  in  a  few  of  the  large  cities  and  in 
such  states  as  New  York,  New  Jersey,  California  and  Illinois, 
which  have  been  more  progressive  than  others ;  officials  of 
Trade  Unions  which  had  standardized  the  examinations  for 
membership  in  the  unions ;  and  the  experience  of  the  Trade 
Test  officers  of  the  Canadian  and  British  armies. 

The  assembly  and  preparation  of  this  material  for  the  Inter- 
viewer's Aids  was  first  assigned  to  Mr.  Frederick  T.  Fisher, 
who  worked  as  a  volunteer  assistant  without  pay.  In  Sep- 
tember, Dr.  Scott,  Prof.  R.  B.  Perry  and  Mr.  Fisher  had  a 
conference  with  Department  of  Labor  Officials  including  the 
Assistant  Secretary  Mr.  L.  F.  Post,  Mr.  T.  V.  Powderly,  Mr. 
C.  T.  Clayton,  and  Mr.  C.  F.  Osborne.  These  representa- 
tives of  the  Department  of  Labor  expressed  the  most  cordial 
attitude  of  cooperation,  and  undertook  to  supply  the  Com- 
mittee with  detailed  information  which  would  make  possible 
the  preparation  of  suitable  sets  of  questions  to  be  asked 


FORERUNNERS  OF  TRADE  TESTS          349 

drafted  men  in  order  to  determine  their  relative  ability  in  their 
respective  trades.  Considerable  material  was  furnished  by 
information  accumulated  in  this  way,  and  also  by  information 
supplied  by  Mr.  A.  J.  Berres,  of  the  American  Federation  of 
Labor.  In  addition  some  progress  was  made  toward  devel- 
oping questions  for  use  in  interviewing  band  musicians,  navi- 
gators, instrument  makers,  and  machinists.  Mr.  Fisher 
withdrew  from  the  work  on  September  22,  and  in  the  pressure 
of  other  duties  no  one  was  given  a  further  assignment  on  this 
work  for  about  three  weeks. 

The  Committee  felt  keenly  the  need,  not  merely  for  the 
assembly  of  this  information  and  its  preparation  for  use  in 
c.-imps,  but  also  for  the  development  of  actual  trade  test  prac- 
tice; consequently  at  a  meeting  of  the  Committee  on  October 
14,  the  whole  situation  was  thoroughly  canvassed.  Five  days 
later  Mr.  Max  Watson  was  given  the  definite  assignment  of 
accumulating  additional  information.  He  had  had  considerable 
experience  in  the  State  Civil  Service  Department  in  California 
and  fully  appreciated  the  importance  of  improved  methods  of 
determining  the  actual  ability  of  tradesmen.  Manufacturers, 
trades  union  officials,  civil  service  officers  and  others  were  cir- 
cularized for  information,  sample  questions  and  answers  being 
included  in  the  letters  so  as  definitely  to  illustrate  what  was 
desired. 

ORGANIZATION   OF  THE   TRADE    TEST   DIVISION 

It  had  become  increasingly  evident  that  this  work  was  of 
such  magnitude  and  of  such  vital  importance  that  it  was  nec- 
essary to  approach  it  in  a  large  way.  Consequently,  a  Trade 
Test  Division  was  organized  and  on  November  1  Mr.  Mark 
M.  Jones,  Director  of  Employment  of  Thomas  A.  Edison, 
Inc.,  Orange,  New  Jersey,  was  placed  in  charge.  Mr.  Jones 
had  already  served  as  one  of  the  civilian  supervisors  in  in- 
stalling personnel  work  at  Camp  Upton.  It  was  thought  that 
the  establishment  of  a  Trade  Test  Division  with  headquarters 
at  Orange  would  be  extremely  advantageous  in  that  it  would 


350  HISTORY  OF  PERSONNEL 

enable  the  men  at  work  on  the  development  and  standardiza- 
tion of  Trade  Tests  to  use  the  facilities  of  Mr.  Edison's  own 
laboratory  and  the  advice  of  his  staff.  There  were  also  sev- 
eral thousand  employees  at  hand  for  trying  out  the  suggested 
tests. 

The  men  employed  to  help  Mr.  Jones  in  Orange  were 
Mr.  John  R.  Field,  in  charge  of  the  office  work,  and  Mr.  J.  M. 
DeBlois,  who  was  to  work  on  test  compilation.  Mr.  Watson 
arrived  in  Orange  on  November  6  with  the  material  which  he 
had  gathered  while  in  Washington. 

On  November  8,  at  Mr.  Jones'  suggestion,  a  meeting  of 
Civil  Service  men  was  called  in  Washington  to  discuss  trade 
test  problems.  At  this  meeting  the  comparative  merits  of 
oral  and  performance  tests  were  thoroughly  discussed.  The 
one  outstanding  result  of  the  meeting  was  the  utter  lack  of 
any  definite  information  or  suggestions  as  to  the  form  or 
method  of  administration  of  such  tests.  It  was  very  evi- 
dent that  the  field  was  one  entirely  outside  of  the  experi- 
ence of  Civil  Service  Commissions,  largely  because  of  the 
conditions  under  which  trade  tests  would  have  to  be  adminis- 
tered. The  suggestion  was  seriously  considered  at  this  time 
of  establishing  a  centralized  testing  station  at  the  point  of 
embarkation  so  that  men  would  be  tested  at  a  centralized 
place  and  not  at  the  various  camps.  The  discussion  also 
covered  the  question  of  the  value  to  be  put  upon  an  experience 
rating  and  also  whether  or  not  any  trade  test  could  be  ad- 
ministered successfully  by  men  unfamiliar  with  the  trade. 
The  general  concensus  of  opinion  of  those  present  seemed  to 
be  that  any  examination  which  was  not  administered  by  an 
expert  would  be  of  questionable  value.  No  consideration 
was  given  to  the  form  of  either  oral  or  performance  tests. 

The  first  work  taken  up  by  the  Orange  Office  was  the  col- 
lection of  data  from  all  sources  which  would  possibly  be  of 
value  in  the  building  of  examinations.  Circular  letters  were 
sent  out  to  Civil  Service  Commissions  in  all  parts  of  the 
country  asking  them  to  submit  examination  questions  together 


FORERUNNERS  OF  TRADE  TESTS          351 

with  their  answers  on  all  subjects  for  which  the  Army  had 
need  of  examination.  Circular  letters  were  also  sent  out  to 
manufacturing  concerns  in  various  parts  of  the  country  asking 
them  through  their  employment  departments  to  furnish 
material. 

THE  FIRST  TESTS 

Mr.  Albert  D.  Fell  joined  the  office  force  on  November  15 
and  Mr.  John  A.  Balcom  on  November  19.  Both  of  these  men 
spent  most  of  their  time  out  in  the  field  collecting  data  from 
all  possible  sources.  As  this  material  was  turned  in  to  the 
Central  Office  sets  of  questions  for  examinations  were  com- 
piled. The  oral  sets  were  composed  of  thirty  questions  divided 
into  three  groups  of  apprentice,  journeyman  and  expert  with 
ten  questions  in  each  group.  The  questions  which  were 
selected  were  the  best  available  and  were  arbitrarily  put  into 
the  various  groups  based  upon  their  apparent  difficulty.  Little 
attempt  was  made  to  control  the  form  of  questions  and  no 
attempt  was  made  to  standardize  the  questions  or  to  try  them 
out  by  administering  them  to  men  actually  working  in  the 
trade  covered  by  the  examination.  The  main  object  at  this 
time  was  to  make  these  sets  available  for  the  use  of  inter- 
viewers in  the  camps. 

During  the  latter  part  of  November,  at  the  request  of  Major 
J.  B.  Watson,  work  was  started  on  compiling  question  sets  in 
fifteen  trades,  to  be  used  by  the  examining  boards  of  the  Signal 
Corps.  About  the  same  time  a  suggestion  was  received  from 
Mr.  Clothier  that  the  office  should  furnish  as  quickly  as  pos- 
sible sets  of  questions  and  answers  on  all  available  trades  to 
be  used  in  the  camps  as  emergency  examinations.  The  first 
suggestion  was  that  these  examinations  be  composed  of  about 
six  questions  for  each  trade,  divided  on  the  basis  of  two 
apprentice,  two  journeyman,  and  two  expert  questions.  This 
work  was  the  beginning  of  the  "Aids  For  Interviewers" 
The  questions  which  were  used  for  these  sets  were  gathered 
together  from  all  sources,  but  no  attempt  was  made  to  stan- 


352 


HISTORY  OF  PERSONNEL 


n 

LINEMAN 

(GENERAL) 

STANDARD             PAGE  1                   2.12.18 

.          .    .             AH  reports  or  communlca- 
Not  to  be  copied,  quoted  or        tlons    concerning    this    test 
reproduced  in  any  form.           should  refer  to 

32-G-l 

v_y 

o 

1:A 

Q.  Name  four  kinds  of  tools  that  are  commonly 
used  for  handling  and  raising  poles. 

A.  (1)  Cant  hook,  (2)  tamping  bars,  (3)  tongs,  (4) 
pike,  (5)  "dead  man." 

2:  A 

Q.     What  is  a  "gain?" 

A.  The  notch  in  a  poie  where  the  cross-arm  is 
fastened. 

3:  A 

Q.    When  Is  it  necessary  to  "guy"  poles? 

A.  (1)  Whenever  a  pole  is  not  .in  line  with  the 
poles  behind  and  ahead,  «r  (2)  an  end  pole.  • 

1:J 

Q.  What  should  be  the  spacing  (under  ordinary 
conditions)  of  wooden  poles  supporting  a  line  of 
number  "ought'?  to  number  "four  ought"  wire 
or  cable? 

A.  One  hundred  and  fifteen  to  one  hundred  and 
twenty-five  feet  apart,  and  at  least  forty-five 
poles  to  the  mile. 

2:J 

Q.    How  are  wires  attached  to  the  Insulators? 

A.  (1)  All  wires  should  be  tied  by  means  of  tie 
wires  to  the  side  of  the  insulators  toward  the 
pole,  except  on  the  insulators  next  to  the  pole, 
where  they  are  to  be  attached  on  the  opposite 
side.  (2)  On  a  turn  the  wires  should  be  at- 
tached so  strain  is  on  insulator  and  not  on 
tie  wire. 

3:J 

Q.  What  should  be  clearance  between  wires  and 
center  of  poles  on  a  line  carrying  not  more 
than  five  thousand  volts? 

A.    Not  less  than  fifteen  inches. 

FIG.  15 
Sample   Page — Aids   for   Interviewers    (TT-1) 


FORERUNNERS  OF  TRADE  TESTS          353 

dardize  them  or  to  put  the  questions  in  such  a  form  that  they 
could  be  standardized.  In  almost  every  case  the  answer  was 
much  longer  than  the  question.  In  making  up  the  sets  the 
number  of  questions  and  answers  was  increased  from  six  to 
twelve  or  fifteen,  depending  upon  their  length.  The  final  issue 
comprised  questions  and  answers  upon  ninety-one  different 
occupations,  and  was  known  as  "Aids  For  Interviewers/' 
(TT-1),  issued  on  February  12,  1918;  (see  Figure  15).  All 
these  questions  and  answers  were  carefully  checked  for  accu- 
racy and  the  whole  contained  a  large  amount  of  information. 
In  many  ways  the  sets  were  used  to  decided  advantage ;  but  the 
whole  work  was  unstandardized,  so  that  it  was  not  certain  how 
skilled  a  man  was  in  terms  of  the  answers  he  gave  to  the  ques- 
tions listed.  An  earlier  edition  restricted  to  twenty  trades  of 
interest  to  the  Signal  Corps  was  issued  on  December  15,  1917, 
and  was  known  as  "TT-2." 

While  these  preliminary  tests  were  being  compiled  the 
accumulation  of  miscellaneous  trade  information  progressed 
rapidly.  A  number  of  conferences  were  held  during  the  win- 
ter at  which  Mr.  Jones  brought  together  business  executives, 
large  employers  of  labor,  and  trade  and  technical  school  offi- 
cials. Practically  everyone  approached  on  the  subject  of  trade 
tests  immediately  sensed  the  importance  of  the  undertaking 
and  volunteered  full  co-operation. 

Most  of  the  information  sent  in  was,  however,  applicable 
only  to  oral  tests.  There  was  a  general  opinion  that  per- 
formance tests  ought  to  be  used  in  the  Army  but  definite  ideas 
concerning  the  best  forms  of  such  tests  were  not  forthcoming. 
The  first  performance  test  plan  conceived  by  the  Trade  Test 
Division  departed  little  from  that  for  oral  tests.  For  each 
trade  it  was  proposed  to  find  various  simple  operations  which, 
like  the  questions  in  the  oral  tests,  might  be  arranged  into 
three  degrees  of  difficulty,  i.  e.,  apprentice,  journeyman,  and 
expert.  Later  on  the  idea  of  having  a  performance  test 
graded  upon  a  single  complex  operation  was  adopted.  Mr. 
J.  A.  Balcom  and  Mr.  J.  H.  Sengstaken  spent  most  of  their 


354 HISTORY  OF  PERSONNEL 

time  on  performance  test  problems,  but  none  of  these  tests 
was  ready  for  use  before  the  reorganization  of  the  division  in 
April. 

Towards  the  end  of  January,  Mr.  T.  R.  Stocksdale  and  Mr. 
Alfred  C.  Rader  joined  the  Division.  Mr.  Stocksdale  gave 
most  of  his  time  to  the  compilation  of  a  form  of  test  which 
required  the  recruit  to  name  and  tell  the  use  of  various  pic- 
tured tools,  machines  and  appliances  of  his  trade.  It  was  not 
until  a  number  of  months  later,  however,  that  the  first  picture 
tests,  greatly  modified  in  form,  were  ready  for  use. 

During  this  time  there  had  been  considerable  discussion 
concerning  the  necessity  of  actually  trying  out  the  tests  which 
had  been  made.  Numerous  plans  for  such  try-outs  were  sug- 
gested and  on  two  or  three  occasions  attempts  were  made  to 
try  the  tests  on  workers.  Since  the  trials  were  conducted 
without  definite  plan  they  were  not  very  satisfactory. 

OCCUPATIONAL  INDEX  AND  TRADE 
SPECIFICATIONS 

By  November  6,  Mr.  John  J.  Swan,  a  mechanical  engineer 
of  New  York  City,  had  joined  the  Trade  Test  Division.  He 
soon  saw  that  the  whole  trade  test  program  implied,  first  of 
all,  an  adequate  classification  of  the  trades  and  definitions  of 
the  trade  terminology  to  be  used.  In  cooperation  with  Dr. 
Strong,  he  finished  revising  the  Index  of  Occupations  and 
Trades  in  the  Army,  which  immediately  became  standard  in 
all  personnel  offices.  Mr.  Swan's  main  work,  the  preparation 
of  the  volume  of  Army  Trade  Specifications,  was  completed 
shortly  afterwards. 

A  study  of  the  general  situation  developed  the  fact  that 
previously  an  examination  of  the  various  organizations  and 
units  in  the  Army  had  been  made  and  a  list  of  trades  or  voca- 
tions prepared  under  certain  group  headings.  Since  these 
group  headings  and  the  list  of  trades  were  at  that  time  being 
used  in  certain  of  the  camps  for  classification  of  the  enlisted 
men,  it  was  necessary  to  continue  the  original  scheme  of 


FORERUNNERS  OF  TRADE  TESTS          355 

classification  even  though  some  minor  defects  had  developed 
in  the  system. 

In  order  that  the  trade  specifications  might  be  comprehen- 
sive, Mr.  Swan  studied  the  various  organizations  in  the  entire 
Army  as  then  made  up,  and  accumulated  data  as  to  the  trade 
names  and  actual  duties  of  men.  This  work  was  undertaken 
in  the  early  stages  of  the  formation  of  our  Army,  when  things 
were  changing  very  rapidly.  There  were  hundreds  of  new 
officers  in  charge  of  important  work,  and  many  of  these  men 
were  so  new  that  they  had  very  little  information  about  what 
was  required.  Furthermore,  the  general  plan  of  the  Army  as 
to  what  new  organizations  would  have  to  be  formed,  and  the 
make-up  of  such  as  had  been  started  in  name  at  least,  was 
very  incomplete  and  uncertain.  In  many  cases  the  actual  in- 
formation needed  could  not  be  obtained  from  those  higher  up 
but  only  from  men  in  minor  positions.  In  other  cases  prac- 
tically no  information  was  obtainable. 

For  a  period  of  five  weeks  Mr.  Swan  devoted  himself  to 
searching  out  the  men  with  the  most  information  and  inter- 
viewing them  individually  or  in  groups.  In  many  cases  it  was 
necessary  to  drive  such  individuals  or  groups  into  completing 
the  organization  plans  for  which  they  were  responsible.  Dur- 
ing this  period  he  obtained  additional  occupations  and  more 
or  less  complete  specifications  of  individual  jobs,  so  far  as  the 
lists  went. 

As  fast  as  these  specifications  were  obtained,  they  were 
transcribed  on  to  a  sheet  and  forwarded  to  the  Orange  office 
from  Washington.  Here  they  were  assembled  so  that  the 
various  definitions  of  carpenter,  submitted  by  different  organ- 
izations of  the  Army,  were  all  brought  together,  those  for 
blacksmith  together,  and  so  on.  They  were  then  edited  with 
the  army  needs  in  mind.  In  this  way  the  general  duties  and 
detailed  qualifications  of  each  man  filling  a  position  requiring 
special  skill  or  training  were  stated.  For  each  position  there 
was  also  included  a  list  of  substitute  occupations. 

To  avoid  duplication  and  in  order  that  the  definitions  or 


356  HISTORY  OF  PERSONNEL 

specifications  might  be  limited  to  the  smallest  possible  number, 
it  was  deemed  best  to  make  each  definition  a  description  of 
what  might  be  termed  "the  maximum  man"  so  that  the  defini- 
tion would  be  a  standard  to  measure  even  the  highest  type  of 
man  in  that  particular  trade  or  profession.  It  was  arranged 
that,  in  the  event  of  such  a  definition  being  too  explicit  or 
describing  too  high  a  type  of  man,  the  term  "apprentice" 
applied  to  the  definition  would  indicate  automatically  a  man 
of  lesser  ability.  Without  this  restricting  statement,  it  was 
understood  in  every  case  that  the  specifications  covered  a 
"journeyman"  unless  "expert/'  "superintendent,"  or  some 
qualifying  term  were  used  in  connection  with  the  actual  occu- 
pation named. 

As  fast  as  the  galley  proofs  were  received  they  were  sub- 
mitted to  the  various  army  organizations  which  were  con- 
cerned, with  requests  for  corrections  and  comments.  The  first 
corrected  proofs  were  returned  with  so  few  and  such  minor 
changes,  and  the  comments  on  them  were  of  such  favorable 
character  that  it  was  considered  safe  to  go  ahead.  The  first 
edition  of  "Trade  Specifications  and  Occupational  Index" 
(Form  CCP-504)  was  issued  on  March  21,  1918. 

The  edition  was  distributed  to  personnel  officers  in  cnmps 
and  overseas,  and  to  a  number  of  other  departments  of  the 
Government  and  civilian  industries  which  expressed  a  desire  to 
adopt  the  system.  The  first  edition  being  exhausted,  a  reprint 
was  undertaken  and  an  edition  of  15,000  issued  about  October 
1,  1918.  On  the  request  of  the  Labor  Department  800  copies 
were  sent  to  them.  Copies  were  also  supplied  to  the  Navy 
Department  and  to  the  Marine  Corps.  A  considerable  number 
were  distributed  to  Governmental  Employment  Agencies  and 
to  personnel  or  instruction  executives  in  large  civilian  indus- 
tries and  elsewhere,  and  a  further  supply  was  sent  abroad  for 
personnel  use  in  the  A.  E.  F.  The  total  number  printed 
amounted  to  17,500.  Five  thousand  copies  were  supplied  to 
the  Provost  Marshal  General,  one  for  each  Local  Board. 


CHAPTER  29 

STANDARDIZED  TRADE  TESTS 
TWO  CONCEPTIONS  OF  TRADE  TESTS 

The  early  history  of  trade  test  work  in  the  Army  was 
marked  by  a  discussion  of  two  conceptions  as  to  what  a  trade 
test  should  be.  One  view  was  that  trade  tests  should  be  made 
up  of  carefully  prepared  and  reasonably  checked  questions 
and  answers  for  each  trade  and  graded  into  three  groups,  for 
apprentices,  for  journeymen,  and  for  experts.  Moreover, 
such  questions  should  be  asked  by  experts  or  at  least  trades- 
men in  the  trade,  who  would  be  able  to  gather  from  the 
answers  given  in  the  test  how  skilled  the  applicant  was. 
The  determination  as  to  what  sets  of  questions  and  answers 
should  be  included  in  a  trade  test,  and  the  grading  of 
their  relative  difficulty  would  naturally  be  decided  by  experts 
in  the  trade.  Coupled  with  this  point  of  view  was  the  desire 
to  get  out  something  as  soon  as  possible,  even  if  it  were  not 
perfect,  which  would  be  of  aid  to  interviewers.  This  was  to 
be  applied  at  once  and  generally,  meanwhile  the  work  of  im- 
provement and  changes  suggested  by  experience  would  be 
carried  on  continuously  towards  ultimate  perfection. 

The  other  conception  of  trade  tests  emphasized  that  such 
sets  of  questions  and  answers  were  of  little,  or  possibly  no 
use,  until  they  had  actually  bee'n  tried  out  and  it  was  known 
that  novices,  apprentices,  journeymen,  and  experts  could  be 
differentiated  through  their  use.  And  the  emphasis  was  placed, 
moreover,  upon  an  actual  try-out,  not  upon  the  opinion  of 
experts  as  to  how  good  the  questions  were. 

Mr.  Mark  M.  Jones,  who  was  placed  in  charge  of  the  Trade 
Test  Division,  supported  the  first  point  of  view.  With  some 

357 


358  HISTORY  OF  PERSONNEL 

exceptions  the  Committee,  on  the  other  hand,  supported  the 
second  point  of  view.  Mr.  Jones  had  the  advantage  in  the 
early  days  as  he  had  a  definite  program,  which  eventually  pro- 
duced the  two  books,  Army  Trade  Specifications  and  Aids  for 
Interviewers,  as  reported  in  the  preceding  chapter.  The 
Committee,  on  the  other  hand,  did  not  know  exactly  how 
their  plan  should  be  carried  out  but  were  confident  that  an 
intelligent  attack  would  very  shortly  result  in  a  clearly  de- 
fined program. 

FIRST  ATTEMPT  AT  STANDARDIZATION  OF  TRADE 

TESTS 

As  has  already  been  pointed  out,  the  Committee  assumed 
that  the  trade  tests  developed  by  the  Trade  Test  Division  at 
Orange  would  be  standardized.  This  standardization  would 
take  the  form  of  trying  the  tests  out  on  tradesmen  of  known 
ability  to  discover  whether  the  tests  did  separate  skilled  from 
unskilled  men  and  to  discover  just  what  score  in  a  given  test 
separated  "poor"  men  from  "good"  men.  While  none  of  the 
original  members  of  the  Trade  Test  Division  was  trained  as 
a  psychologist  or  statistician,  the  Committee  felt  that  the 
Orange  group  would  quickly  appreciate  the  necessity  for 
standardized  tests.  In  order  that  this  point  of  view  might 
be  represented,  Dr.  T.  L.  Kelley  was  assigned  in  November, 
1917,  to  the  Orange  office.  He  had  had  considerable  training  in 
psychology  and  statistics  and  was  experienced  in  the  prac- 
tical work  of  a  number  of  trades.  After  a  week  at  Orange 
Dr.  Kelley  believed  that  the  following  principles  had  been 
agreed  upon  as  fundamental  bases  for  trade  test  work:  (1) 
trade  tests  should  be  uniform  and  not  dependent  upon  the 
individual  choices  of  the  experts  or  others  who  were  trade 
testers;  (2)  job  analyses  were  necessary  before  it  was  pos- 
sible to  devise  tests  strictly  appropriate  to  army  needs;  (3) 
all  tests  should  be  standardized  by  actual  try-outs.  The 
exact  nature  of  the  try-outs  was  not  considered  at  that  time. 

Leaving  Orange  November  6,  Dr.  Kelley  went  to  Texas 


STANDARDIZED  TRADE  TESTS  359 

where,  since  fall,  trade  tests  introduced  by  British  and  Cana- 
dian officers  had  become  prominent  in  the  aviation  camps. 
Here  he  made  a  careful  investigation  of  the  British  trade 
tests  as  he  found  them  in  Texas.  He  reported  considerable 
activity  in  the  use  of  performance  tests,  but  very  little  in  the 
way  of  standardized  procedure. 

After  his  return  from  Texas,  Dr.  Kelley  tried  to  push 
further  at  Orange  his  ideas  on  performance  tests  and  stan- 
dardization. It  then  became  clear  that  Mr.  Jones  and  Dr. 
Kelley  held  decidedly  contrary  points  of  view.  Because  of 
this  the  latter  soon  after  left  the  Orange  office  and  returned 
to  Columbia  University. 

Meanwhile  Dr.  Thorndike  and  Dr.  Bingham  we're  becom- 
ing concerned  about  the  necessity  for  greater  speed  in  the 
preparation  of  performance  tests  and  for  the  systematic  try- 
out  of  all  tests.  Both  had  conferences  with  Mr.  Jones  and 
on  December  17,  1917,  Dr.  Bingham  forwarded  him  a  memo- 
randum in  regard  to  trade  tests  which  Dr.  Thorndike  had 
prepared.  The  following  excerpts  from  this  memorandum 
will  be  seen  to  contain  the  gist  of  a  standardization  proce- 
dure: 

"Mr.  Jones  and  Mr.  Swan  are  eager  to  have  the  Trade 
Tests  tried  out,  but  they  are  both  too  busy  to  do  any  more 
in  this  line  now  than  they  have  already  done.  I  would 
help,  but  I  am  trying  to  push  through  a  report  for  Colonel 
Bingham.  I  can  help  on  the  matter  later;  for  the  present 
it  seems  best  for  Dr.  Kelley  to  give  whatever  time  he  has 
to  spare  from  work  for  Major  Yerkes,  as  soon  as  he  finishes 
his  report  on  the  essential  facts  about  army  schools,  to  this 
work.  If  Mr.  Jones  can  provide  the  men  of  known  ability 
and  inability  to  be  tried  out,  Dr.  Kelley  could  act  substan- 
tially as  a  trade  tester  in  a  camp  would  do  except  that  h< 
will  give  as  complete  a  test  as  time  allows,  and  will  record 
all  answers  and  preserve  all  products  produced  so  far  as 
possible. 


360  HISTORY  OF  PERSONNEL 


"To  complete  as  far  as 

possible,  the 

following  program: 

Carpenter 

Auto      Machinist 

Rep. 

Test 

Test             Test 

10  good  carpenters    

10 

2                     2 

10  poor  carpenters  

10 

2                     2 

10  good  auto  repairers.  .  . 

2 

10                     2 

10  poor  auto  repairers.  .  . 

2 

10                     2 

10  good  machinists  

2 

2                   10 

10  Door  machinists.. 

2 

2                   10 

"Any  other  test  will  do  in  place  of  one  or  more  of  these 
three  in  case  they  are  not  all  ready. 

"The  point  is  to  have  each  test  tried  out  with  approxi- 
mately 28  men,  10  good  at  the  thing,  10  poor,  etc.,  and  8 
who  are  good  or  poor  at  other  things.  The  point  of  this 
latter  is  to  give  a  second  check  on  whether  the  tests  are 
diluted  by  a  general  ability  to  pass  examinations  distinct 
from  special  ability  in  the  trade  in  question. 

"The  above  will  take,  roughly,  200  hours  of  Dr.  Kelley's 
time  in  testing  and  as  much  more  in  working  up  results ; 
Mr.  Jones  to  supply: 

4  good  carpenters  for  4  hours  each 
4  poor  carpenters  for  4  hours  each 
6  good  carpenters  for  2  hours  each 
6  poor  carpenters  for  2  hours  each, 

and  similarly  for  each  of  the  other  trades,  and  to  supply 
the  materials  for  the  practical  side  of  the  tests;  and  in 
general  to  give  Dr.  Kelley  facilities  for  the  testing. 

"From  this  study  Dr.  Kelley  will  approximately  deter- 
mine: 

(1)  How  long  it  takes  to  give  each  separate  example. 

(2)  Points  in  connection  with  the  wording  of  a  question 
and  of  the  reported  answer. 

(3)  The  reliability  of  the  test  as  a  measure  of  the  trade 
which  it  is  attempting  to  measure. 

(4)  The.  degree   to   which   the   separate    questions     are 
tests    of    general    knowledge    or    of    specific    trade 
knowledge." 


STANDARDIZED  TRADE  TESTS  361 

FIRST  EXPERIMENTS  IN  STANDARDIZATION 

While  in  Texas  observing  the  British  trade  tests,  Dr. 
Kelley  had  given  some  oral  tests  to  mechanics  of  known  abil- 
ity. The  results  had  been  sent  to  Orange,  but  were  neglected 
in  the  rush  of  other  work.  About  January  1,  however,  Dr. 
Kelley  was  given  an  assignment  to  work  on  the  try-out  of 
trade  tests  in  New  York  under  the  direction  of  Dr.  Thorn- 
dike.  He  concentrated  first  of  all  on  tests  for  telephone 
repairmen,  electricians,  (power  plant,  linemen  and  inside 
wiremen),  carpenters,  (general),  and  automobile  repairmen. 
Taking  the  sets  of  questions  prepared  at  Orange  which 
seemed  to  be  most  promising  as  indicators  of  ability,  he  went 
from  garage  to  garage  and  from  shop  to  shop  and  gave  them 
to  workmen  whose  ability  was  vouched  for  by  the  superinten- 
dents. He  also  gave  these  same  questions  to  college  students 
and  to  men  who  purported  to  be  skilled  in  other  trades,  his 
point  in  doing  this  being  that  those  questions  should  be 
eliminated  which  could  be  correctly  answered  on  the  basis  of 
general  education  or  intelligence.  The  number  of  tradesmen 
examined  varied  with  the  different  trades,  but  averaged  about 
fifteen.  A  smaller  number  were  tested  with  questions  for 
machinist  (toolmaker),  mechanical  draftsman,  and  chauffeur. 
The  results  of  this  first  experiment  showed  how  impossible  it 
is  to  predict  in  advance  the  degree  of  reliability  which  is  to 
be  attached  to  the  answers  to  an  apparently  good  question. 
Localisms  had  to  be  discovered  and  eliminated,  such  as  the 
"come-along"  in  the  lineman's  test.  The  try-out  also  brought 
out  very  clearly  the  fact  that  the  trade  of  automobile  repair- 
man, for  example,  is,  to  a  certain  extent,  a  group  of  more  or 
less  distinct  trades;  and  that  power  plant  electricians  are  of 
two  distinct  sorts,  according  to  whether  their  experience  has 
been  in  a  direct  current  or  an  alternating  current  plant.  It 
demonstrated  the  necessity  for  (1)  trade  analysis,  and  (2) 
standardization  of  examinations  through  try-outs  on  a  suf- 
ficient number  and  variety  of  tradesmen  whose  skill  was 
known. 


362  HISTORY  OF  PERSONNEL 

The  minutes  of  the  Committee  meeting  of  January  15 
record  the  activities  of  the  group  at  that  time. 

"1.  The  Trade  Test  Division,  through  M.  M.  Jones 
and  J.  J.  Swan,  reported  that  the  first  draft  for  the  volume 
of  Personnel  Specifications  would  be  completed  in  one 
week;  that  rapid  progress  was  being  made  on  the  prepara- 
tion of  the  Aids  for  Intervewers;  and  that  the  trade  tests 
proper,  or  performance  tests,  had  reached  a  stage  of  devel- 
opment where  adoption  of  a  policy  regarding  installation 
is  essential.  Mr.  Jones  estimated  that  the  cost  of  buildings, 
equipment,  supplies  and  salaries  for  installing  the  Trade 
Test  System  in  sixteen  cantonments  would  be  $300,000.00. 
It  was  deemed  advisable  to  first  undertake  an  installation 
at  a  National  Army  Cantonment  such  as  Camp  Dix,  and  a 
staff  corps  camp,  such  as  the  one  at  Raritan,  New  Jersey. 
These  would  serve  both  as  try-outs  of  the  methods  and  as 
demonstrations  to  the  Army.  Mr.  Clothier  was  requested 
to  arrange  the  necessary  introduction  for  Mr.  Jones  to 
Commanding  General  Scott  and  the  Personnel  Officer  at 
Camp  Dix. 

"2.  Plans  were  discussed  for  testing  both  the  Inter- 
viewers' Aids  and  the  Performance  tests.  It  was  deemed 
of  the  utmost  importance  to  determine  mathematically  by 
actual  trial  as  early  as  possible,  just  how  little  or  how 
much  reliance  may  be  placed  on  the  results  of  the  inter- 
view, independent  of  the  performance  tests ;  and  what  is 
the  degree  of  reliability  of  the  performance  tests  proper. 
The  difficulty  of  getting,  at  Orange,  enough  good  and  poor 
workmen  of  one  trade  to  give  the  hours  necessary  was 
pointed  out.  Tentative  try-outs  by  Thurstone  at  the  Car- 
negie Institute  of  Technology,  and  elsewhere,  were  author- 
ized and  Mr.  Jones  undertook  to  ascertain  what  arrange- 
ments would  be  necessary  to  permit  of  adequate  try-outs 
at  Orange  as  soon  as  the  necessary  equipment  is  assem- 
bled." 

However,  the  thought  and  efforts  of  everybody  at  Orange 
were  concentrated  upon  the  work  already  at  hand,  including 
plans  for  Trade  Test  Buildings  in  the  camps.  The  Com- 
mittee became  convinced  that  the  only  way  to  make  progress 
with  the  task  of  determining  the  reliability  of  the  projected 
methods  was  to  bring  into  the  organization  someone  whose 


STANDARDIZED  TRADE  TESTS  363 

primary  responsibility  would  be  to  test  the  tests.  It  was  for 
this  purpose  that  Dr.  Beardsley  Ruml  became  an  associate 
of  the  Committee  on  February  2.  The  division  of  respon- 
sibility was  as  follows:  The  Trade  Test  Division,  under  Mr. 
Jones,  was  to  be  responsible  for  devising  and  preparing  the 
tests.  That  work  was  not  to  be  interrupted,  but  was  to  go 
steadily  forward.  Meanwhile  Dr.  Ruml  was  to  be  respon- 
sible for  trying  out  the  tests,  determining  their  relative  reli- 
ability, and  standardizing  the  procedure  and  the  scoring. 

THE  STANDARDIZATION  STAFF 

The  division  of  the  work  was   more  clearly  expressed  a 
month  later  in  the  following  statement  written  on  March  1 1 : 

"1.  It  is  the  function  of  the  Trade  Test  Division  to 
devise  suitable  tests,  both  oral  and  performance;  to  work 
out  specifications  of  equipment,  building  and  materials 
needed,  and  to  submit  the  general  plan  under  which  it 
seems  advisable  to  install  the  Trade  Tests  in  the  army. 

"2.  The  Try-Out  Group,  working  under  Dr.  Ruml,  is 
responsible  for  evaluating  these  tests  by  actual  trial  on  a 
sufficient  number  of  tradesmen  whose  degree  of  skill  is 
known.  Ambiguities  will  be  discovered,  alternative  an- 
swers formulated,  localisms  of  terminology  pointed  out  and 
suggestions  for  modification  of  questions  or  answers  trans- 
mitted back  to  the  Trade  Test  Division,  at  Orange.  Here, 
also,  Dr.  Ruml  will  undertake  a  statistical  determination 
of  the  relative  weight  which  should  be  attached  to  the  dif- 
ferent questions  and  the  grade  that  should  be  assigned  to 
them  as  apprentice,  journeymen  or  expert  journeymen. 

"3.  Responsibility  for  installing  the  Trade  Tests  in  the 
Army  divisions:  The  arrangements  for  introduction  of 
the  Trade  Test  methods  into  the  Army,  including  the 
securing  of  suitable  space,  equipment  and  personnel,  will 
be  made  by  the  Washington  office,  working  in  closest  co- 
operation with  Mr.  Jones,  Mr.  Reilly  and  all  the  officers 
who  have  to  do  with  supervision  of  the  personnel  work. 

"To  recapitulate:  Mr.  Jones  is  responsible  for  devising 
and  preparing  the  tests;  Dr.  Ruml  is  responsible  for  try- 
ing them  out,  evaluating  them,  or  calibrating  them,  and  the 


HISTORY  OF  PERSONNEL 


Washington  Office  is  responsible  for  making  them  available 

for  Army  use." 

Because  of  the  close  affiliation  between  the  Committee  and 
the  Carnegie  Institute  of  Technology,  the  try-out  work  began 
in  Pittsburgh.  During  March,  1918,  a  group,  including  Dr. 
J.  C.  Chapman,  Mr.  R.  F.  Evans,  Dr.  Thomas  J.  Kirby,  Mr. 
W.  P.  Shatts  and  Dr.  L.  L.  Thurstone,  attempted  to  stan- 
dardize the  oral  tests  devised  by  the  Orange  staff  by  using 
them  upon  groups  of  tradesmen  of  known  ability. 

Pittsburgh  as  the  trade  test  standardization  center  lasted 
but  a  few  weeks.  But  the  experience  gained  there  was  of 
great  value.  Possibly  the  principal  point  learned  was  that 
trade  test  questions  must  be  so  devised  as  to  bring  out  easily 
scored  answers.  Many  of  the  questions,  up  to  that  time  sup- 
plied from  Orange,  resulted  in  long  and  involved  answers, 
and  often  in  a  great  variety  of  answers,  all  approximately 
correct.  Such  answers  could  not  be  scored  by  an  examiner 
who  was  not  an  expert  in  the  trade.  As  it  was  felt  that  it 
would  be  impossible  to  secure  sufficient  experts  in  all  trades 
for  all  the  camps,  it  was  contended  that  the  tests  must  be 
developed  so  that  non-tradesmen  examiners  could  be  used. 

As  a  result  of  this  experience  Mr.  Max  Watson  of  the 
Orange  group,  who  had  been  putting  together  many  of  the 
oral  tests,  saw  the  need  for  standardization  and  commenced 
experimenting  in  framing  questions  with  scorable  answers, 
much  to  the  benefit  of  the  standardization  work.  In  fact, 
with  the  square  facing  of  this  problem  began  the  really  valu- 
able work  of  the  Trade  Test  Division  in  shaping  a  scienti- 
fically sound  technique  for  measuring  trade  ability. 

About  March  20  the  headquarters  of  the  standardization 
group  was  moved  from  Pittsburgh  to  Newark,  N.  J.,  where 
the  Orange  group  would  be  within  easy  reach.  By  this  time, 
however,  the  Edison  interests,  whose  employment  problems 
were  multiplying,  were  making  greater  and  greater  demands 
upon  the  time  of  Mr.  Jones.  It  became  evident  that  he  must 
give  up  his  work  with  the  trade  tests  or  with  Edison.  The 


STANDARDIZED  TRADE  TESTS  365 

Edison  interests  finally  won  him.  He  severed  his  connection 
with  the  Trade  Test  Division  on  April  8.  Through  his 
efforts  the  work  in  trade  tests  was  organized,  a  large  number 
of  important  persons  were  interested,  and  the  Aids  for  Inter- 
viewers were  issued. 

REVISED  METHODS  OF  TEST  MAKING 

Upon  the  retirement  of  Mr.  Jones,  Dr.  Ruml  was  put  in 
charge  of  all  matters  concerning  the  devising  and  standardiz- 
ing of  trade  tests,  while  Mr.  L.  B.  Hopkins  of  the  Pittsfield 
plant  of  the  General  Electric  Company  was  asked  to  install 
trade  tests  in  the  camps.  At  this  time  the  center  for  devising 
tests  was  transferred  to  the  Newark  standardization  office, 
then  located  with  the  Newark  Board  of  Trade  at  800  Broad 
Street. 

There  still  remained  to  be  worked  out  the  details  of  a 
thorough-going  program  of  standardization  which  would 
result  in  the  production  of  the  greatest  possible  number  of 
reliable  tests  in  the  shortest  possible  space  of  time. 

The  analysis  of  this  production  problem  revealed  three 
necessary  characteristics  of  the  tests  to  be  made:  (1)  They 
must  differentiate  between  the  various  grades  of  trade  skill; 
(2)  they  must  produce  uniform  results  in  various  places  and 
in  the  hands  of  different  examiners;  and  (3)  they  must  con- 
sume, in  the  giving,  a  small  amount  of  time,  energy  and 
material. 

In  order  to  check  up  the  capacity  of  the  tests  to  separate 
various  degrees  of  trade  ability,  it  was  necessary  to  choose 
just  what  degrees  of  ability  the  tests  were  to  mark  off.  Since 
the  terms,  "apprentice,"  "journeyman/'  and  "expert"  had 
already  been  used  as  expressive  of  certain  ranges  of  trade 
ability,  these  terms  were  retained  and  given  arbitrary  defini- 
tion. The  apprentice  was  said  to  be  a  tradesman  who,  while 
master  of  certain  aspects  of  his  trade,  could  not  yet  be  en- 
trusted with  an  important  task.  The  journeyman  was  a 
tradesman  who  could  perform  practically  any  job  in  his 


366  HISTORY  OF  PERSONNEL 

trade.  The  expert  could  perform  quickly  and  with  superior 
skill  any  work  done  by  men  in  his  trade.  To  these  classifisa- 
tions  was  added  that  of  "novice,"  or  one  who  had  had  no 
trade  experience.  The  differentiating  capacity  of  the  trade 
tests  was  to  be  measured  by  the  accuracy  with  which  men  of 
the  above  kinds  were  separated. 

Practically  all  of  the  thought  of  the  Division  had  been  con- 
fined to  two  methods  of  testing,  namely  oral  and  performance, 
so  it  was  decided  to  push  forward  along  these  two  lines,  leav- 
ing the  development  of  other  possible  techniques  till  a  later 
time. 

The  experimental  procedures  used  in  the  development  of 
these  two  kinds  of  tests  were  practically  the  same,  though 
one  resulted  in  a  list  of  questions  and  the  other  in  a  specified 
job. 

A  discussion  of  the  development  of  oral  tests  alone  will  be 
.  sufficient  to  indicate  the  main  features  of  the  development  of 
standardized  trade  tests  in  general.  The  reader  will  simply 
remember  that  while  the  single  question  and  answer  was  the 
element  of  the  oral  test;  an  aspect  of  a  job,  such  as  the  level- 
ness  of  a  planed  surface  or  the  tightness  of  a  bolt,  was  the 
element  of  the  performance  tests.  For  all  practical  purposes 
questions  and  answers  on  the  one  hand  and  aspects  of  a  job 
on  the  other,  were  open  to  the  same  sort  of  quantitative 
treatment. 

To  go  on  to  test  development,  then,  each  oral  test  passed 
through  the  following  seven  stages:  (l)  Priority;  (2)  Com- 
pilation; (3)  Preliminary  Sampling;  (4)  Revision;  (5)  Final 
Sampling;  (6)  Evaluation;  (7)  Calibration  and  Editing. 

The  trades  for  which  tests  should  be  developed  first  were 
selected  by  the  Committee  in  Washington  in  terms  of  the 
priority  of  needs  and  submitted  to  the  Newark  office  where 
assignments  were  made  to  the  field  staff. 

The  field  staff  then  investigated:  (a)  Whether  the  trade 
named  really  existed  (it  was  found  for  example  that  there 
is  no  longer  a  gunsmith  trade  although  there  is  a  trade  of  gun 


STANDARDIZED  TRADE  TESTS  367 

repairer) ;  and  (b)  what  were  the  elements  of  the  trade — 
what  peculiar  sort  of  facts  and  habits  of  behavior  were 
possessed  by  tradesmen  in  this  line.  After  the  field  staff 
had  gathered  together  all  possible  information  about  a  trade, 
that  information  was  incorporated  into  from  sixty  to  ninety 
questions  whose  answers  were  known  only  to  men  in  the 
particular  trade  for  which  the  test  was  being  devised. 

This  set  of  questions  was  then  taken  out  for  preliminary 
sampling.  During  this  process  from  nine  to  twelve  trades- 
men from  different  plants  answered  all  of  the  questions. 
Their  answers  showed  whether  the  questions  were  unambigu- 
ous to  the  ordinary  tradesman  and  whether  the  possible  cor- 
rect answers  to  each  question  were  few  in  number  and  short 
in  length. 

In  the  light  of  these  results  of  this  preliminary  sampling, 
some  of  the  original  questions  were  thrown  out  and  others 
were  modified  in  form.  The  test  thus  revised  and  reformu- 
lated was  ready  for  the  final  sampling  process. 

During  final  sampling  the  revised  list  of  questions  was 
given  to  eighty  men  whose  trade  ability  was  known,  There 
were  usually  twenty  novices,  twenty  apprentices,  twenty 
journeymen  and  twenty  experts.  In  this  connection  it  should 
be  noted  that  many  industrial  concerns  in  Newark  and  the 
vicinity  cooperated  most  heartily  by  donating  the  time  of 
their  employees  for  this  testing  of  the  tests. 

The  scores  of  each  man  in  the  various  questions  were  then 
turned  over  to  the  statistical  department  of  the  Trade  Test 
Division.  Here  a  quantitative  study  of  evaluation  was  made 
of  each  question.  The  questions  turned  out  to  be  of  several 
types  (See  figure  16.)  Some  of  the  questions  were  answered 
correctly  by  practically  all  of  the  experts,  by  most  of  the 
journeymen,  by  fewer  of  the  apprentices  and  by  fewer  still 
of  the  novices.  (See  question  11,  figure  16.)  Other  ques- 
tions were  answered  correctly  by  almost  all  tradesmen  and 
incorrectly  by  practically  all  non-tradesmen  (Question  3, 
figure  16).  There  were  still  others  which  experts  and  jour- 


368 


HISTORY  OF  PERSONNEL 


neymen  answered  with  similar  success,  and  apprentices  and 
novices  with  similar  failure  (Question  38,  figure  16);  and 
finally  there  were  questions  which  only  experts  could  answer 


<#fe«r.7 

TlVA/ 

sVa. 

'/ 

<Z 

\v*# 

r"o~ 

•  sr* 

a 

& 

<<sf*r 

-r+/r. 

**  J 

a 

d 

ff* 

r/a* 

'^ 

*/ 

*    * 

a 

/& 

/f 
/ 

4- 

o 

'7 

/•e 

T 

2* 

-V- 

t* 

* 

-*- 
r— 

/ 

*• 

O 

~~o 

& 

-fs- 

1 

3 

// 

J 

11 

J 

P 

3 

!/ 

2 

i 

' 

Z 

I 

T 

'1 

Z 

/, 

/ 

'        / 

// 

/ 

I 

/ 

I 

/ 

A 

0  ;* 

X* 

a 

I 

0 

*£ 

k^"' 

..; 

0 

f^ 

,/ 

s*+ 

««_ 

9r     # 

<*-^ 

r/**' 

/K> 

s- 

tf 

l/fj 

ry0SV 

x»*. 

'0 

&*f 

srsa. 

v/tf> 

^/ 

& 

Hf-S> 

'Stf/V 

/M>. 

(«• 

/Y 

^ 

j- 

X-" 

fV 

/f 

J- 

Jf 

sY 

^ 

J- 

£. 

/V 

^ 

•J 

e 

4 
V 

/a 

** 

ZO 

/a 

*s- 

t 

' 

7 

7 

V- 

» 

7 

ST 

/N 

'*- 

r 

0 

o 

j 

#• 

3 

1 

3 

3 

/ 

\ 

3 

*          1 

Z 

Z 

I 

2 

/        / 

/ 

7* 

/ 

/ 

/ 

/ 

~- 

0 
/* 

a 

^ 

0 

a 

^/ 

/• 

f*     /* 

3* 

<*•• 

j>» 

/?* 

•*• 

•  Z 

/•¥ 

/•*• 

#v 

•« 

/•* 

j-t 

f-e 

*v 

O 

o 

•* 

•  e 

FIGURE  16 

This  chart  shows  graphic  representations  of  four  type  questions 
and  four  rejected  questions.  Each  question  is  scored  from  4  to  0:  4 
for  correct,  0  for  incorrect,  and  other  scores  for  partial  credit. 

The  dotted  lines  indicate  ideal  types;  the  solid  lines  show  the  aver- 
age scores  of  answers  actually  given  in  this  test. 

Question  11  approximates  a  gradual  differentiation  of  groups. 

Question  3  is  a  "Trade"  Question,  differentiating  rather  sharply 
between  Novice  and  Tradesman. 

Question  38  is  an  "Apprentice-Journeyman"  Question,  differen- 
tiating between  Novice  and  Apprentice  on  one  hand  and  Journey- 
man and  Expert  on  the  other. 

Question  21  is  an  "Expert"  Question,  its  most  marked  differentia- 
tion being  between  Journeyman  and  Expert. 

Question  5  is  a  poor  trade  question,  Novices  scoring  high  and 
Experts  relatively  low. 

Questions  10,  31  and  42,  are  also  poor  questions  which  were  finally 
rejected. 


STANDARDIZED  TRADE  TESTS 


369 


(Question  21,  figure  16).  Questions  of  all  of  these  types 
were  useful  since  all  tended  to  divide  those  of  lesser  from 
those  of  greater  trade  ability.  It  was  simply  a  matter  of 
selecting  from  the  types  available  that  combination  which 


FIGURE  17 

This  chart  shows  the  distribution  according  to  individual  total 
scores  of  the  80  subjects  used  in  standardization.  Each  square 
represents  one  man.  The  first  row  gives  the  distribution  of  20 
novices,  i.e.,  9  novices  scored  zero  in  the  test,  7  scored  four,  3  scored 
eight  and  1  scored  sixteen.  The  second  row  gives  the  distribution  of 
20  apprentices,  the  third  row  20  journeymen,  and  the  fourth  row 
20  experts.  The  three  vertical  heavy  lines  show  the  limits  of  the 
various  groups  as  determined  by  the  distribution  of  the  men  used 
in  standardization.  The  limits  shown  are  the  ones  finally  used  in 
Army  testing,  i.e.,  0-19  for  novices,  20-43  for  apprentices,  44-67  for 
journeymen  and  68-80  for  experts. 

would  make  the  best  discrimination  between  novices  and 
apprentices,  apprentices  and  journeymen,  and  journeymen 
and  experts. 

Of  course,  there  were  questions  (See  Nos.  5,  10,  31  and 
42,  figure  16),  which  did  not  differentiate  between  "poorer" 
and  "better"  men.  These  were  immediately  thrown  out. 

After  the  evaluation  of  the  individual  questions  and  the 
selection  of  a  final  set,  it  was  necessary  to  determine  what 


370  HISTORY  OF  PERSONNEL 

ranges  of  scores  in  the  test  as  a  whole  would  include  novices, 
apprentices,  journeymen  and  experts.  Using  only  the  scores 
in  the  final  list  of  questions  the  men  tested  were  grouped  as 
in  Figure  17.  Most  of  the  experts  scored  higher  than  the 
journeymen,  most  of  the  journeymen  higher  than  the  appren- 
tices, etc.,  although  there  was  always  some  slight  overlapping. 
The  test  was  calibrated  by  determining  those  scores  (the 
critical  scores)  at  which  there  was  the  least  overlapping. 
Knowing  these  scores  the  camp  examiner  could  judge  accur- 
ately the  trade  status  of  a  soldier  making  any  given  score 
in  the  test. 

These  steps  of  test  development  were  not  modified  to  any 
great  extent  from  April,  1918,  till  the  armistice  was  signed 
in  November.  In  fact,  throughout  the  work  the  standardiza- 
tion program  seemed  to  have  been  thought  out  with  remark- 
able foresight,  so  well  did  it  stand  up  under  the  attacks  of 
the  critically-minded  and  the  demands  for  quantity  produc- 
tion from  the  Armv. 


CHAPTER  30 

TRADE  TESTS  IN  OPERATION 
FIRST  PLANS  FOR  INSTALLATION 

As  has  already  been  stated,  examining  boards  of  the  Signal 
Corps  began  to  use  the  lists  of  questions  in  TT-2  as  early 
as  December  15,  191 7,  and  by  February  12,  1918,  the  Aids 
to  Interviewers  was  in  the  hands  .of  all  personnel  officers. 
These  early  tests,  however,  were  never  intended  to  be  final, 
so  even  while  they  were  being  put  together  the  Committee 
was  at  work  upon  plans  for  the  installation  in  the  camps  of 
a  much  more  elaborate  trade  test  machinery.  Although  up  to 
this  point  no  performance  tests  had  been  produced,  it  was 
felt  that  a  considerable  number  of  these  tests  would  be  pre- 
pared during  the  spring  months.  An  attempt  was  made, 
therefore,  to  secure  an  appropriation  which  would  make  pos- 
sible the  immediate  introduction  into  the  camps  of  all  tests 
as  fast  as  they  were  ready  for  use.  On  February  15,  1918, 
three  days  after  the  publication  of  Aids  to  Interviewers,  the 
following  memorandum  prepared  by  Major  (later  Lt.  Col.) 
Grenville  Clark,  was  addressed  by  The  Adjutant  General 
to  the  Chief  of  Staff. 

"SUBJECT:  Installation  of  Trade  Test  System  in  Can- 
tonments. 

"1.  Beginning  in  September,  1917,  there  has  been  in- 
stalled in  all  National  Army  and  National  Guard  Camps  in 
the  United  States  a  system  of  occupational  and  vocational 
classification  of  enlisted  men.  This  classification  is  now  in 
progress  in  Regular  Army  Divisions.  Samples  of  the  cards 
used  and  index  of  occupations  under  which  the  men  are 
classified  are  attached.  These  cards  are  filed  by  com- 
panies or  regiments  at  Division  Headquarters,  in  the  Per- 

371 


372  HISTORY  OF  PERSONNEL 

sormel  Office  in  charge  of  the  Division  Personnel  Officer. 
The  system  has  been  established  under  the  jurisdiction  of 
this  office  with  the  advice  and  assistance  of  the  Committee 
on  Classification  of  Personnel,  appointed  by  the  Secretary 
of  War. 

"2.  The  system  has  been  used  in  two  principal  ways, 
(a)  for  the  selection  of  men  within  the  Division  for  special 
purposes  and  the  'balancing'  of  units  of  the  Division,  (b) 
for  the  selection  of  men  for  transfer  out  of  the  Division. 

"3.  For  both  of  the  above  purposes  the  system  has  been 
valuable  and  in  many  respects  indispensable.  Experience 
has  shown,  however,  that  the  results  are  necessarily  imper- 
fect. No  matter  how  intelligently  the  man  may  be  inter- 
viewed and  his  qualifications  recorded  and  analyzed, 
selection  on  a  mere  paper  record  does  not  give  fully  satis- 
factory results.  On  the  other  hand  the  necessity  for  accur- 
ate selection  has  been  proven  to  be  extremely  important. 
The  demands  of  various  branches  of  the  service  for  skilled 
men  are  both  large  in  number  and  varied  in  kind.  Some 
75jOOO  men  have  been  selected  from  National  Army  canton- 
ments for  special  purposes,  in  the  Engineer  Corps,  Quar- 
termaster Corps,  Ordnance  Department,  Signal  Corps  and 
Medical  Department.  The  great  bulk  of  these  men  are 
called  for  in  accordance  with  vocational  qualifications  cov- 
ering a  wide  range,  from  farriers  and  blacksmiths  to  engine 
repair  and  instrument  repair  men.  There  is  every  reason 
to  believe  that  this  process  of  selection  and  transfer  will 
go  on  indefinitely.  Ineffective  selection  must  have  serious 
consequences.  For  example,  an  attempt  is  now  being  made 
to  obtain  2,400  locomotive  repair  men  and  2,400  car  repair 
men  for  immediate  duty  in  France.  It  is  certain  that  no 
such  number  of  men  with  actual  experience  in  car  and  loco- 
motive repair  can  be  found,  so  that  it  will  be  necessary  to 
take  skilled  men  of  allied  trades.  The  degree  of  useful- 
ness of  men  in  France  will  depend  on  the  accuracy  of  selec- 
tion. Such  accuracy  cannot  be  obtained  except  by  actual 
test  of  qualifications. 

"4.  To  achieve  the  best  results  it  is  necessary  to  supple- 
ment the  card  classification  system  by  a  system  of  trade 
tests  to  determine  by  oral  and  practical  examination  the 
actual  vocational  skill  of  the  man. 

"5.  The  above  conclusion  was  arrived  at  in  an  early 
stage  of  their  work  by  the  Classification  Committee  and 


TRADE  TESTS  IN  OPERATION  373 

they  were  authorized  to  investigate  carefully  the  whole 
subject  of  trade  tests.  This  has  now  been  done  in  an 
elaborate  research  and  series  of  experiments  during  the 
last  three  months  through  Mr.  M.  M.  Jones  of  Thomas  A. 
Edison,  Inc.,  of  New  Jersey,  and  Mr.  J.  J.  Swan,  Con- 
sulting Mechanical  Engineer  of  New  York  City.  A  series 
of  oral  tests  prepared  by  them  is  already  in  use  by  the  Sig- 
nal Corps.  There  is  submitted  herewith  a  report  on  the 
subject  by  Mr.  Jones. 

"6.  It  is  believed  that  the  advisability  of  trade  tests  in 
the  Army  has  been  sufficiently  demonstrated  and  that  it  is 
now  time  to  install  such  a  system  in  a  comprehensive  way 
and  as  soon  as  possible.  It  is  also  believed  that  no  half- 
measures  should  be  adopted,  but  that  the  system  should  be 
installed  and  equipped  in  such  a  way  as  to  insure  thorough- 
ness and  good  results. 

"7.  Mr.  Jones  recommends  the  use  of  a  standard  two- 
story  barracks  building  in  each  cantonment  and  the  pro- 
vision of  equipment  at  an  estimated  cost  of  $17,000  per 
unit.  In  many  cases  it  is  believed  that  a  building  could  be 
made  available  without  building  a  new  one.  The  cost 
should  not  be  a  deterrent,  for  the  value  of  effective  selec- 
tion of  men  for  special  purposes  is  far  greater  in  dollars 
and  cents  than  the  expense  here  involved,  not  to  speak 
of  the  military  value  that  cannot  be  measured  in  dollars. 
The  trade  tests,  it  is  believed,  will  be  of  even  more  direct 
and  practical  value  in  the  Army  than  the  psychological  ex- 
aminations which  have  been  authorized  and  buildings  pro- 
vided for  to  cost  $12,000  at  each  camp. 

"8.  It  is  recommended  that  authority  be  given  to  install 
a  trade  test  system  in  all  permanent  or  semi-permanent 
camps  and  cantonments  having  accommodations  for  10,000 
men  or  more  (excluding  embarkation  camps,  camps  to  be 
vacated  within  six  months)  and  to  expend  an  average  of 
not  more  than  $17,000  on  buildings  and  equipment  for 
each  of  the  various  stations;  buildings  already  built  to  be 
used  where  available;  the  system  to  be  installed  under  the 
advice  and  with  the  assistance  of  the  experts  associated 
with  the  Committee  on  Classification  of  Personnel  and 
when  the  system  is  installed  and  the  proper  military  organ- 
ization completed  to  be  turned  over  to  it. 

(Signed)   "H.  P.  McCxiN, 

"The  Adjutant  General." 


374  HISTORY  OF  PERSONNEL 

The  recommendations  of  this  memorandum  were  not  ac- 
cepted immediately.  The  work  was  new  and  while  the  pro- 
posal seemed  sound  the  General  Staff  hesitated  to  adopt  it 
without  some  sort  of  preliminary  trial.  The  Committee  de- 
cided to  change  its  plans  somewhat  in  the  face  of  this  atti- 
tude. The  Trade  Test  Division  was  therefore  instructed  to 
push  forward  the  installation  of  trade  tests  gradually,  camp 
by  camp. 

Shortly  after  this  Mr.  Jones  left  the  Trade  Test  Division 
and  responsibility  for  drawing  up  concrete  plans  of  installa- 
tion fell  largely  upon  the  shoulders  of  Mr.  L.  B.  Hopkins, 
assisted  by  Mr.  S.  B.  Mathewson,  a  former  personnel  super- 
visor. 

One  of  the  first  problems  to  be  settled  concerned  the  selec- 
tion of  camps  in  which  trade  tests  were  to  be  installed.  It 
seemed  probable  at  this  time  that  arrangements  could  be  made 
to  have  all  drafted  men  come  into  the  Army  through  the  depot 
brigades  of  the  sixteen  National  Army  cantonments.  It  was 
planned,  therefore,  to  establish  trade  test  stations  only  in  the 
sixteen  cantonments.  Observation  of  camp  conditions  showed 
certain  practical  limitations  which  must  be  considered  in  pro- 
ducing trade  tests  for  the  Army.  Because  of  the  great  num- 
bers of  men  passing  through  the  depot  brigades  it  was  neces- 
sary to  deal  quickly  with  each  one.  It  was,  therefore,  decided 
that  no  oral  or  picture  tests  should  be  produced  which  could 
not  be  given  in  ten  minutes  or  less.  It  seemed  impractical  to 
try  to  use  any  performance  tests  which  could  not  be  given 
in  thirty  minutes.  At  the  same  time  $5.00  was  set  as  the 
average  cost  of  equipment  for  performance  tests,  and  15  cents 
as  the  cost  of  material  to  be  used  in  giving  a  performance 
test  to  any  single  individual. 

Early  Work  at  Camp  Dix.  Permission  having  been  ob- 
tained from  Colonel  W.  C.  Johnson,  Chief  of  Staff  of  the 
78th  Division,  an  experimental  automobile  test  course  was 
completed  at  Camp  Dix  on  April  22,  1918.  Here  Messrs. 


TRADE  TESTS  IN  OPERATION  375 

J.  A.  Balcom  and  E.  S.  Robinson  developed  and  standardized 
a  performance  trade  test  for  auto  drivers. 

From  April  22  on,  oral  and  picture  tests  were  given  at 
Camp  Dix  to  selected  groups  of  men,  more  as  tests  of  the 
tests  than  of  the  men.  This  was  perhaps  the  first  applica- 
tion of  trade  tests  in  camp,  but  the  results  were  particularly 
gratifying.  P'or  example,  a  soldier  who  had  represented  him- 
self upon  interview  to  be  a  "theatre  electrician"  failed  mis- 
erably on  the  picture  test  and  under  cross  examination  ad- 
mitted his  experience  to  be  confined  to  switching  on  and  off 
the  various  theatre  lighting  effects.  On  the  whole  the  results 
obtained  from  the  oral  and  picture  tests  at  this  time  gave 
great  impetus  to  the  enthusiasm  of  the  test  building  group 
at  Newark. 

Installation  at  Camp  Johnston.  Late  in  April  authoriza- 
tion was  obtained  from  the  Quartermaster  General  and  the 
Chief  of  Ordnance  to  establish  trade  test  stations  at  Camp 
Johnston  and  at  the  Ordnance  Training  Camp,  Camp  Han- 
cock. 

Mr.  Hopkins,  accompanied  by  Mr.  Mathewson,  arrived  in 
Jacksonville,  on  May  8,  to  look  over  the  ground  at  Johnston. 
Mr.  W.  S.  Field,  a  special  representative  of  the  Quarter- 
master General's  Office,  was  at  Camp  Johnston,  studying 
plans  for  increasing  the  capacity  and  usefulness  of  this  camp. 
Colonel  Charles  Willard  was  Camp  Commander  and  Mr. 
Cooley  of  the  University  of  Wisconsin  was  in  charge  of  the 
training  division.  Mr.  Hopkins'  problem  was  to  convince 
these  three  gentlemen  of  the  need  for  trade  tests.  This  was 
no  small  task  as  he  had  only  nine  oral,  two  picture  and 
three  performance  tests,  and  these  did  not  appear  to  meet 
the  greatest  need  at  Camp  Johnston.  For  example,  the  selec- 
tion of  truck  drivers  was  among  their  important  problems  and 
there  was  a  trade  test  only  for  light  car  chauffeurs. 

A  hurry  call  was  wired  to  Newark  requesting  increased 
production,  and  within  the  next  ten  days  10  oral  and  4 
performance  tests,  including  the  truck  driver's  test,  were 


376 HISTORY  OF  PERSONNEL 

received.  On  May  12,  the  first  trade  tests,  the  results  of 
which  were  to  be  used  in  assigning  soldiers,  were  given  in 
a  tent  at  the  Camp  Johnston  Receiving  Station. 

At  a  formal  meeting  on  this  date,  attended  by  Colonel 
Willard,  Mr.  W.  S.  Field,  Mr.  Cooley,  Mr.  (later  Major) 
H.  W.  Jerremanus,  Mr.  J.  W.  Broadhead  and  a  number  of 
other  camp  authorities,  a  demonstration  of  the  simplicity, 
value,  accuracy  and  the  uniform  results  obtainable  from  tests 
impressed  the  camp  authorities  to  such  an  extent  that  they 
were  willing  to  recommend  permanent  installation  at  Camp 
Johnston.  Mr.  Field  accordingly  incorporated  this  recom- 
mendation in  a  letter  to  the  Quartermaster  General.  This 
letter  marked  an  epoch  in  the  history  of  trade  tests  because 
it  resulted  in  the  first  concrete  recognition  of  trade  test  work 
— an  appropriation  of  $18,000  for  the  Camp  Johnston  trade 
test  station. 

An  interesting  feature  of  the  Camp  Johnston  work  was  the 
fact  that  no  hill  was  available  for  the  auto  or  truck  courses ; 
also,  the  sandy  soil  made  it  impossible  to  drive  machines  on 
anything  but  prepared  roads.  To  overcome  these  handicaps 
it  was  necessary  to  expend  about  $6,000  in  the  preparation 
of  a  shell-road  which  ran  down  into  a  steep  ravine,  thereby 
securing  the  hill  effect  from  the  sides  of  the  water-course. 

Trade  test  work  at  Camp  Johnston  was  subsequently  so 
well  established  that  every  man  claiming  trade  ability  was 
assigned  from  the  Receiving  Camp  to  the  proper  training 
organization  on  the  basis  of  the  results  of  trade  tests. 

Early  Work  at  Camp  Hancock.  Following  the  work  at 
Camp  Johnston,  Mr.  Mathewson,  who  had  been  fortified 
with  a  letter  from  the  Chief  of  Ordnance  to  the  Command- 
ing Officer  of  the  training  camp  at  Camp  Hancock,  reported 
there  on  May  18,  and  proceeded  with  the  installation  of  oral, 
picture  and  performance  tests.  Owing  to  the  proximity  of 
the  Augusta  Arsenal  and  the  cooperation  of  Major  R.  L. 
Gaugler.  commanding  the  Ordnance  Camp,  a  building,  per- 
sonnel, equipment  and  supplies  were  easily  obtained,  and 


TRADE  TESTS  IN  OPERATION  377. 

trade  testing  was  started  May  22,  under  Captain  D.  C. 
Detchon,  Personnel  Adjutant.  Personnel  and  trade  test  work 
was  later  firmly  established  and  continued  under  Lieutenant 
Newman  L.  Hoopingarner. 

NEWARK   TRAINING   SCHOOL   FOR   TRADE   TEST 
OFFICERS 

From  June  10  to  15  a  training  school  for  trade  test  officers 
was  held  in  Newark  with  42  officers  and  enlisted  men  in  at- 
tendance. From  this  school  16  enlisted  men  and  5  officers 
were  selected  and  sent  to  Camp  Dix,  New  Jersey,  for  further 
training  under  supervision  of  Mr.  Mathewson.  Nine  of  the 
16  enlisted  men  were  subsequently  commissioned  in  The 
Adjutant  General's  Department.  The  training  at  Camp  Dix 
was  designed  to  give  them  actual  camp  experience  in  the  ap- 
plication of  the  various  theories  taught  them  at  the  Newark 
School.  It  was  planned  to  distribute  these  men  in  groups 
to  the  various  camps,  gradually  spreading  them  over  the  en- 
tire United  States  to  all  camps  having  Depot  Brigades. 

TESTING  DIVISION  TRAINS 

On  June  20,  Mr.  Hopkins  received  a  request  from  the 
General  Staff  to  trade  test  the  personnel  of  the  motorized 
units  of  the  divisions  at  Camps  Devens,  Meade,  Custer,  Dodge 
and  Sevier.  The  necessity  for  speed  was  apparent  as  the 
divisions  at  these  camps  were  being  prepared  for  overseas 
duty  as  rapidly  as  possible.  Compliance  with  this  request 
required  a  complete  change  of  plans  by  the  Trade  Test  Divi- 
sion. The  training  at  Camp  Dix  was  cut  short,  and  an  officer 
and  enlisted  man  were  transferred  from  the  training  group  at 
Camp  Dix  to  each  of  the  five  (and  later  eleven)  camps.  Test- 
ing commenced  on  June  24,  and  was  continued  until  prac- 
tically every  truck  drivQr  or  mechanic  under  training  in  the 
trains  was  given  a  trade  test  rating. 

The  following  are  copies  of  telegrams  from  the  Contmand- 
ing  Generals  of  the  79th  Division  at  Camp  Meade;  76th, 


378  HISTORY  OF  PERSONNEL 

Devens;  85th,  Ouster;  and  88th,  Dodge.  These  telegrams, 
sent  to  The  Adjutant  General  from  the  field,  showed  con- 
clusively the  value  of  trade  tests  in  preparing  an  organiza- 
tion for  overseas  duty. 

"July  2,  1918. 
"The  Adjutant  General  of  the  Army, 

"Washington. 

"Retel  July  first,  the  trade  test  given  the  Ammunition 
Train  Engineer  Train  and  Sanitary  Train  was  satisfac- 
to'ry  in  that  it  revealed  conclusively  the  number  of  men  who 
were  fit  for  assignment  as  well  as  those  unfit  for  assign- 
ment and  permitted  those  trains  to  be  filled  properly  by 
qualified  men  from  the  recent  draft  upon  the  results  of  the 
test.  The  test  is  considered  highly  satisfactory  by  the 
train  commander.  The  final  result  can  be  known  only 
after  actual  experience  in  the  field.  The  Motor  Supply 
Train  is  absent  on  convoy  duty  and  cannot  be  tested. 

"KENNEDY." 

"Retel  first  reference  trade  testing  enlisted  personnel  of 
motor  units  of  our  train.  Results  of  these  tests  highly 
satisfactory.  Men  now  serving  as  truck  drivers  in  trains 
are  well  qualified  for  this  work. 

"BEACH." 

"Six  eighty  seven  retel  July  first,  reference  to  report  on 
results  of  trade  testing.  Train  commanders  advise  tests 
very  satisfactory  in  every  respect,  showing  conclusively 
the  men  who  are  fitted  and  those  unfitted  for  their 
assignment.  "HODGES." 

"Retel  first,  results  of  trade  testing  have  been  very  sat- 
isfactory, showing  some  non-commissioned  officers  not  as 
well  qualified  as  some  privates  and  in  many  cases  uncover- 
ing talent  that  would  have  been  produced  only  after  long 
service.  With  more  time  than  is  available  in  present 
emergency  most  satisfactory  results  can  be  expected. 

"NICHOLSON." 

Many  men  already  assigned  to  motorized  units  of  the  divi- 
sions-who  failed  on  the  test  were  replaced  with  new  men  from 
the  June  draft  who  qualified  on  the  test.  The  special  test- 


TRADE  TESTS  IN  OPERATION  379 

ing  of  motorized  units  continued  until  18  divisions  were  cov- 
ered. This  work,  supervised  by  Capt.  E.  O.  Buhler,  unques- 
tionably prepared  these  divisions  for  better  service  overseas. 
The  following  letter,  under  date  of  October  17,  1918, 
shows  very  clearly  the  appreciation  of  Major  General  Hoi- 
brook,  commanding  the  9th  Division  at  Camp  Sheridan,  of 
the  value  of  trade  tests  in  the  organization  of  the  division. 

"From:  Commanding  General,  Camp  Sheridan,  Ala. 

"To:  The  Adjutant  General  of  the  Army,  Washington, 
D.  C. 

"Subject:  Trade  Test  Division. 

"1.  First  Lieutenant  Joseph  F.  Haas,  Adjutant  Gen- 
eral's Department,  has  been  conducting  a  trade  test  school 
here  during  the  last  two  weeks.  In  that  time  he  has 
thoroughly  trade  tested  the  Ninth  Division  Supply  and 
Sanitary  Trains  and  the  motorized  Machine  Gun  Battalion. 
The  results  of  the  test  have  been  highly  satisfactory.  Many 
men  assigned  as  truck  drivers  have  been  disqualified  as 
such  and  replaced  by  others  suitably  qualified.  It  is  essen- 
tial that  skill  of  this  kind  be  definitely  determined  especially 
since  motorized  equipment  for  training  purposes  is  not 
available  here.  The  motorized  units  of  the  Division  are 
now  completely  formed  and  contain  all  the  skilled  men 
called  for  in  the  Tables  of  Occupational  Needs  of  an  In- 
fantry Division. 

"2.  Trade  Tests  are  indispensable  to  the  efficient  organ- 
ization of  units  requiring  a  large  number  of  men  with 
specialized  skill.  The  system  of  Classification  of  Person- 
nel is  not  complete  without  the  trade  test  work. 

"3.  In  view  of  the  fact  that  this  camp  is  soon  to  receive 
several  thousand  draft  recruits  for  the  formation  of  two 
field  artillery  brigades,  it  is  strongly  recommended  that 
arrangements  be  made  to  establish  a  permanent  Trade 
Test  Station  here  to  supplement  the  System  of  Classifica- 
tion of  Personnel.  The  scale  of  operation  for  trade  test- 
ing will  necessarily  be  less  extensive  than  in  camps  where 
there  are  depot  brigades,  but  camps  without  depot  brigades 
should  not  suffer  the  handicap  of  being  without  this  useful 
work.  A  section  commensurate  with  the  plan  of  the  camp 
and  its  accommodations  is  greatly  needed. 


380  HISTORY  OF  PERSONNEL 

"4.  Request  information  if  a  permanent  trade  test  sec- 
tion is  contemplated  for  Camp  Sheridan. 

(Signed)     "W.  A.  HOLBROOK, 
"Major  General,  U.  S.  A." 

TRADE  TESTS  IN  THE  NATIONAL  ARMY 
CANTONMENTS 

From  the  middle  of  June  till  the  latter  part  of  August, 
the  field  workers  of  the  Trade  Test  Division  were  gradually 
opening  up  trade  test  sections  in  the  personnel  offices  of  the 
National  Army  Cantonments.  The  last  of  these  sections, 
that  at  Camp  Travis,  was  installed  on  August  27,  1918. 

Trade  Tests  at  Garden  City.  At  the  Newark  School  there 
were  in  attendance,  Captain  D.  S.  Seton  of  the  Department  of 
Military  Aeronautics  and  two  enlisted  men  from  Garden  City, 
Aviation  Field,  No.  2.  Captain  Seton,  who  was  personnel 
adjutant  at  the  above  camp,  became  so  convinced  of  the  im- 
portance of  trade  tests  in  the  selection  and  placement  of 
airplane  mechanics  that  he  attempted  to  interest  the  Depart- 
ment of  Aeronautics  to  the  extent  of  having  trade  tests  adopted 
at  all  of  their  stations.  This  was  never  accomplished;  but  due 
to  Captain  Seton's  unfailing  devotion  to  the  ideal  there  was 
ultimately  established  at  Garden  City  a  most  complete  and 
successful  trade  test  station. 

THE  PRODUCTION  OF  TESTS 

From  the  beginning  of  the  work  in  the  camps  till  the  sign- 
ing of  the  armistice,  the  call  directed  to  Newark  was  for 
faster  and  faster  production  of  tests.  The  automobile  and 
machine  trades  alone,  with  their  many  sub-divisions,  required 
a  great  many  tests  and  little  really  effective  work  could  be 
done  until  these  two  fields  were  thoroughly  covered. 

The  result  was  a  hurrying  of  the  test  building  process. 
The  oral  tests  from  the  first  were  put  out  on  a  time  schedule 
and  even  in  the  case  of  performance  tests,  where  a  much  less 
standardized  production  process  was  possible,  no  time  was 


TRADE  TESTS  IN  OPERATION  381 

lost  in  non-essential  experimentation.  Some  chances  to  im- 
prove technique  were  undoubtedly  lost  with  this  rapid  for- 
ward movement,  but  on  the  whole  the  results  were  probably 
much  better  than  they  would  have  been  under  lighter 
pressure.  For  one  thing,  there  certainly  was  no  opportunity 
for  the  test  makers  to  indulge  in  laboratory  dallying  even  of 
the  best  intended  sort. 

In  April  when  production  was  just  getting  under  way, 
there  were  about  a  dozen  men  in  the  office  at  800  Broad 
Street,  Newark,  and  four  in  Pittsburgh.  Dr.  Rural  directed 
the  early  meetings  which  settled  for  all  time  many  of  the 
problems  of  trade  test  method.  R.  F.  Evans,  Max  Watson, 
Dr.  P.  J.  Kruse,  P.  N.  Golden  and  S.  V.  Boyd  worked  on 
oral  tests  in  Newark.  These  tests  were  tried  out  and 
checked  by  Dr.  J.  C.  Chapman,  Dr.  L.  L.  Thurstone,  Dr. 
T.  J.  Kirby  and  H.  A.  Toops  of  Pittsburg.  All  of  the  per- 
formance test  work  was  done  in  Newark.  J.  A.  Balcom  and 
J.  H.  Sengstaken,  who  had  been  on  performance  tests  in 
Orange,  continued  in  the  same  line  when  they  joined  the 
Newark  group.  F.  Meine  and  E.  S.  Robinson,  both  of  whom 
had  up  to  this  time  been  working  in  the  Washington  office  of 
the  Committee,  joined  the  performance  test  work  about 
April  1.  W.  P.  Shatts  was  assigned  to  performance  tests  for 
a  short  time,  after  which  he  was  directed  to  organize  a  con- 
tact and  information  department.  The  early  statistical  work 
in  connection  with  oral  tests  was  done  by  Dr.  Ruml.  This 
work  was  later  taken  over  by  Miss  Harriet  E.  O'Shea.  The 
performance  test  statistical  work  was  done  by  members  of 
the  performance  test  group. 

During  the  early  days  of  the  Division  Dr.  Kelley  had 
investigated  certain  British  trade  tests  in  use  in  Texas  avia- 
tion camps.  The  Committee  now  thought  it  wise  to  make  a 
closer  examination  of  British  trade  tests  which  was  possible 
only  by  seeing  those  tests  operating  in  England.  Accordingly 
it  was  decided  that  Dr.  Ruml  should  join  a  party  of  the 
Committee  about  to  look  into  certain  personnel  problems 


382  HISTORY  OF  PERSONNEL 

overseas,  his  own  specific  task  being  to  collect  all  possible 
information  about  British  trade  tests.  On  July  1,  E.  S. 
Robinson  became  acting  head  of  the  Newark  office  and  on 
July  8  Dr.  Ruml  sailed  from  Hoboken.  He  returned  October 
15,  having  been  employed  in  France  on  personnel  work  for 
some  time.  His  report  on  British  trade  tests  showed  that 
their  work  differed  from  that  in  this  country  in  that  (1)  their 
administration  was  more  centralized;  (2)  their  scoring  was 
unstandardized ;  (3)  their  examiners  were  trade  experts,  and 
(4)  their  tests,  being  longer  and  more  elaborate,  made  a  more 
analytical  measurement  of  the  trade  ability  of  each  candidate. 
The  armistice  was  signed  too  soon  after  for  the  effect  of  this 
report  to  have  made  any  change  in  procedure  here,  if  such 
change  would  have  resulted. 

About  July  15,  another  oral  standardization  center  was 
established  at  Cleveland  and  Dr.  J.  C.  Chapman  and  Mr. 
G.  F.  Parsons  were  placed  in  charge.  The  great  advantage 
in  having  centers  at  Cleveland,  Pittsburgh,  and  Newark  lay 
in  the  greater  variety  of  industries  that  could  be  reached  and 
also  that  provincialism  and  local  regulations  could  be  dis- 
covered and  so  eliminated  from  the  tests. 

Dr.  L.  L.  Thurstone,  who  had  been  giving  trade  tests  half 
time  in  Pittsburgh,  came  on  to  Newark  for  the  summer.  He 
made  a  careful  study  of  picture  test  technique  and  aided  by 
Dr.  C.  K.  Lyans  and  Mr.  F.  Schuchman  turned  out  a  number 
of  very  successful  tests  of  this  kind. 

During  the  first  few  months  of  the  work  little  or  no  dis- 
tinction had  been  made  between  the  functions  of  devising  and 
standardizing  tests.  With  the  increasing  of  the  staff,  how- 
ever, this  distinction  was  made.  Those  men  who  had  been 
at  the  work  from  the  beginning  now  put  more  and  more  of 
their  time  on  the  devising  of  tests,  while  the  newer  and  less 
experienced  men  took  over  most  of  the  standardization.  For 
the  standardization  of  performance  tests  a  special  group  was 
organized  with  First  Lieutenant  J.  F.  Haas,  and  later  First 


TRADE  TESTS  IN  OPERATION  383 

Lieutenant  Harrison  J.  Ryon,  at  its  head.  Many  members 
of  camp  trade  test  organizations  sent  to  Newark  to  learn  how 
trade  tests  were  made,  were  assigned  during  their  stay  to 
this  performance  standardization  group. 

Detailed  instructions  as  to  operation  of  trade  tests  in  the 
camps,  together  with  several  sample  tests,  are  given  in 
Chapter  VI  of  the  Personnel  Manual  Volume  II. 

The  Trade  Test  Conference.  On  Saturday,  August  10, 
and  Sunday,  August  11,  a  conference  was  held  at  the  Hotel 
Robert  Treat  in  Newark.  At  this  conference  the  field  work- 
ers and  test  makers  discussed,  to  the  profit  of  both,  the  gen- 
eral trade  test  situation.  Mr.  Hopkins  presided  at  this  con- 
ference and  centered  most  of  the  talk  about  the  manuscript 
for  the  trade  test  chapter  of  the  Personnel  Manual  which 
had  just  been  prepared  under  Mr.  Mathewson's  direction. 

Establishing  a  Permanent  School.  During  the  summer  it 
had  become  more  and  more  apparent  that  the  welfare  of  trade 
tests  demanded  above  all  carefully  trained  trade  test  officers 
in  the  camps.  The  pressure  of  events  had  rather  pushed  this 
training  problem  into  the  background  after  the  first  school  in 
June,  although  there  was  a  general  appreciation  of  the  need 
for  a  regular  training  course.  When,  however,  the  trade  test 
staff  at  Newark,  on  September  1,  moved  into  their  first 
adequate  quarters,  it  was  decided  to  start  a  permanent  school 
immediately.  Accordingly,  a  large  room  in  the  new  quarters 
was  set  aside  and  equipped  with  all  the  tools  and  materials 
necessary  for  training  purposes.  Mr.  Hopkins  at  the  same 
time  arranged  for  the  temporary  transfer  of  Captain  (later 
Major)  J.  W.  Hayes  of  the  Sanitary  Corps  who  was  to  take 
charge  of  training  problems  connected  with  trade  tests. 
Captain  Hayes  arrived  in  Newark  early  in  October,  and, 
with  Lieutenant  Tornquist  as  his  assistant,  started  what 
promised  to  be  a  very  successful  training  course  for  trade 
test  officers. 


384 


HISTORY  OF  PERSONNEL 


LIST    OF   TRADES    ON    WHICH    SOME    FORM    OF 
TRADE  TEST  HAS  BEEN  DEVELOPED 


Name  of  Trade 

Auto    Repairer — Carburetor 24c 

"      —General  24g 

"      — Magneto   24m 

"      — Motorcycle 24mo 

"  "      —Radiator 24r 

Baker  &  Cook — Cook 40c 

Blacksmith — Forger,  drop 7d 

"         — Forger,  hammersmith 7ha 

"         — General    7g 

"         — Horseshoer   7h 

— Wagoner   7wa 

Boilermaker — General   63g 

"          — Locomotive    631 

Bricklayer — General    .  / 26g 

Butcher— Butcher     41b 

Canvas  Worker — General    76g 

Carpenter — Boat    builder      8b 

—Bridge     8br 

"        —Cabinet  Maker   8cb 

"        —General    8g 

"        — Patternmaker     8p 

—Ship    8s 

Chauffeur — Au.to  Driver    22a 

"        — Motorcycle    22m 

"        —Truck   Driver    23t 

Chemist  &  Chemical  Worker — 

Chemical   Laboratory    67g 

Clerical  Worker — General  Office..         .  38e 

O 

Electrician — Armature  Winder   lOar 

"         — Generator    &    Switchboard 

Tender   AC    lOgt 

"         — Generator    &    Switchboard 

Tender  DC  lOgt 

— Inside  Wireman    lOw 

—Storage  Battery   lOst 

Engineman  &  Fireman— Engineman, 

Portable...  17p 


Test  Developed 
Oral    Perform-  Pic- 
ance      ture 


TRADE  TESTS  IN  OPERATION 


385 


Name  of  Trade 

Foundryman — Cupola  Tender    20cu 

— Melter,  brass   20mb 

— Moulder,  iron  &  brass. .   20m 

Horseman — Stable  Boss  27h 

Instrument  Maker  and  Repairer — 

Electrical    72e 

Typewriter    (Remington)    72t(R) 

"  (Underwood)     72t(U) 

Leather   Worker — Cobbler    .  .   47c 


Test  Developed 
Oral    Perform-  Pic- 
ance      ture 


x 
x 
x 
x 

"      — Harness    Maker 47h  x 

Lineman   &   Cableman — Cableman, 

Tel.  &  Tel....   32tc  x 
— Lineman, 

General    32p  x 

— Lineman, 

Tel.  &  Tel....   32t  x 
Machinist   and   Mechanic. 

— Automatic  Screw  Mche.  Oper. . . .     6aw  x 

— Boring  Mill  Operator  6bo 

— Die  Sinker   6di  x 

— Drill  Press  Operator 6d 

— General    6g  x 

— Grinding  Machine  Operator  ....     6gr 

— Lathe  Hand  Operator   61  x 

— Locomotive,  General   61o  x 

— Milling  Machine  Operator    6ml 

— Planer  Operator  6pl 

— Toolmaker    6to  x 

—Turret    Lathe    6t 

Painter— General    13g  x 

Photographer — Developer,  Motion 

Picture    84md  x 

«            — Motion  Picture   34mp  x 

"            — Still    (Commercial)    ...   34p(C)  x 

Pipefitter— Ammonia    14a  x 

"        — Plumber    14p  x 

"        — Steamfitter    14s  x 

Printer — Compositor     46c  x 

"      —Pressman    (Cylinder)    46p(C)  x 


386  HISTORY  OF  PERSONNEL       

Test  Developed 
Oral    Perform-  Pic- 
Name  of  Trade  ance      ture 
Printer — Pressman   (Lithograph). 

Stone  and  Offset   46p(SO)    x  x 

"      —Pressman    (Platen)    46p(P)      x  x 

Rubber  Worker — Tire  Repairer   94t  x 

Sheet  Metal  Worker — Coppersmith 19c  x 

Sheet  Metal  Worker — General   19g  x  x 

Stenographer  &  Typist — Stenographer.   39s  x 

"  "     —Typist    39t  x 

Structural  Steel  Worker — Erector 21e  x  x 

"  "  "       —Riveter    & 

Driller, 

Pneu 21rp  x 

Surveyor — General     30g  x 

Tailor— Tailor      48t  x 

Telegraph  &  Wireless  Operator — Radio 

Operator 31w  x  x 

Telephone   Man — Operator    33o  x 

"    — Telephone    Repairer 

(Instrument)     33t  x 

«  "    — Telephone   Repairer 

(Switchboard)     33s  x 

Welder — Gas   Expert    96a  x 

Welder — Oxi- Acetylene  Operator 96c  x 

Total  83  trades 

CONCLUSION 

The  services  of  about  thirty-five  men  were  required.  Be- 
fore mobilization  ceased,  they  had  prepared  and  standard- 
ized tests  in  eighty-three  of  the  more  essential  trades.  This 
work  cost  about  a  thousand  dollars  a  trade;  but  the  saving 
to  the  War  Department  through  the  resulting  economics  of 
pay  and  subsistence  of  otherwise  misplaced  soldiers  was 
several  times  that  amount  every  month;  and  the  still  more 
valuable  economy,  not  measurable  in  dollars,  is  found  in  the 
resulting  facilitation  of  training,  through  correct  initial  place- 
ment. 


SECTION  VHI. 
THE  CENTRAL  DISTRIBUTING  OFFICE 

The  earliest  plans  in  connection  with  the  classi- 
fication of  enlisted  men  did  not  provide  for  a  clear- 
ing office  to  equalize  supply  and  demand  for  skilled 
men  between  camps.  All  that  was  provided  were 
personnel  officers  in  each  camp  to  place  men  to  the 
best  advantage  within  the  camp.  But  almost  im- 
mediately following  the  arrival  of  the  first  drafted 
men  in  the  camps  the  need  for  a  central  distributing 
office  made  itself  felt. 

Chapter  31  traces  the  development  of  this  office 
and  outlines  its  various  functions,  with  the  excep- 
tion of  the  main  one  which  was  the  distribution  of 
occupational  specialists.  An  account  of  this  work 
is  given  in  Chapter  32.  The  statistical  studies  of 
this  office  and  their  relationship  to  personnel  prob- 
lems are  next  discussed  in  Chapter  33;  followed  in 
Chapter  34  with  an  account  of  certain  special  prob- 
lems, such  as  supplying  chemists,  railroad  men, 
furloughing  men  to  industry,  etc. 


CHAPTER  31 

THE    DEVELOPMENT    OF   THE   CENTRAL 
DISTRIBUTING    OFFICE 

FUNCTION  OF  CENTRAL  DISTRIBUTING  OFFICE 

In  September,  1917,  when  the  need  for  a  central  distribut- 
ing office  first  became  apparent,  it  was  planned  that  each 
camp  should  report  at  stated  intervals  to  Washington,  the 
number  of  specialists  on  hand  at  a  given  date.  Then  when 
a  shortage  appeared  it  would  be  noted  and  an  attempt  would 
be  made  to  supply  the  need.  This  office  was  on  the  one  hand 
to  receive  the  "requisitions"  for  men  from  various  organiza- 
tions of  the  Army,  and  on  the  other,  the  reports  of  the  quali- 
fications of  men  in  camp.  These  reports  were  the  supply 
from  which  to  order  men  to  fill  these  requisitions.  Two  fac- 
tors very  materially  changed  the  plans  in  connection  with 
this  office.  The  first  was  that  it  was  found  there  never  would 
be  a  surplus  of  skilled  men,  and  the  second,  that  the  majority 
of  requests  for  specialists  came  from  the  Staff  Corps.  The 
problem  of  the  Distributing  Office  then  included  not  only 
the  shortages  in  the  camps,  but  the  very  pressing  needs  of 
the  Staff  Corps  for  men  of  special  skill. 

The  purposes  of  the  Central  Distributing  Office  included 
the  control  of  occupational  specialists.  All  specialists  were 
reported  to  that  office,  and  were  distributed  from  there  to  fill 
the  most  urgent  needs  for  men  of  any  particular  qualifica- 
tions. Great  care  was  taken  in  the  placing  of  rare  special- 
ists, or  "rare  birds"  as  they  were  called.  An  excellent  ex- 
ample of  this  was  the  finding  and  reporting  of  three  thou- 
sand chemists  to  the  Chemical  Warfare  Service  for  their 
use.  This  particular  problem  will  be  discussed  in  a  later 

389 


390  HISTORY  OF  PERSONNEL 

chapter.  Another  purpose  of  the  Central  Distributing  Office 
was  to  afford  some  place  which  should  not  only  receive  all 
the  requests  for  men  of  special  qualifications,  but  also  analyze 
these  requests  as  to  the  actual  needs  and  the  comparative 
urgency  of  each.  That  both  the  supply  and  the  demand 
should  meet  in  one  office  was  natural,  and  the  task  of  assign- 
ing men  reported  in  this  manner  to  fill  places  where  they 
were  most  needed  and  which  they  were  best  fitted  to  occupy 
became  the  whole  work  of  this  office.  To  the  personnel  adju- 
tants and  their  staff  in  the  camps  fell  that  part  of  fitting 
the  "Right  Man  in  the  Right  Place"  which  dealt  with  the 
individuals  themselves,  but  to  the  Central  Distributing  Office 
fell  the  task  of  visualizing  the  needs  of  the  Army  as  a  whole 
and  the  ordering  of  men  by  occupations  to  fill  that  need. 

DETERMINING   PRIORITY   OF   SPECIALISTS 

All  problems  relating  to  priorities  and  the  general  sources 
of  supply  of  men  belonged  to  the  Operations  Division  of  the 
General  Staff.  To  aid  in  determining  the  relative  impor- 
tance of  the  various  requisitions,  and  to  pass  on  their  eligibility 
to  receive  men,  a  Priority  Committee  composed  of  Colonel, 
(later  Brig.  Gen.)  R.  I.  Rees  of  the  General  Staff,  Major 
(later  Lt.  Col.)  Grenville  Clark  of  the  Adjutant  General's 
Office,  and  Col.  (later  Brig.  Gen.)  H.  S.  Johnson  of  the 
Provost  Marshal  General's  Office,  was  formed.  This  Com- 
mittee passed  on  all  requests  for  a  small  number  of  men 
without  any  further  action  being  necessary.  In  the  case  of 
requests  for  a  large  number  of  men  it  was  necessary  to  have 
the  approval  of  the  Director  of  Operations  before  the  requisi- 
tion could  be  acted  upon.  The  order  establishing  the  pro- 
cedure in  the  Depot  Brigades  made  it  necessary  for  the  con- 
nection with  the  Operations  Division  to  be  closer,  and  the 
Priority  Committee  became  obsolete.  It  is  interesting  to  note 
that  this  Priority  Committee  became  the  Committee  on  Edu- 
cation and  Special  Training. 


CENTRAL  DISTRIBUTING  OFFICE          391 

EARLY    ACTIVITIES    OF    THE    CENTRAL 
DISTRIBUTING   OFFICE 

In  September,  1917,  the  Central  Office  began  to  function. 
Mr.  H.  L.  Gardner  organized  the  Central  Office  and  upon  his 
departure  in  November,  1917,  A.  C.  Robinson  III  took 
charge  of  the  work  until  Mr.  W.  B.  Hale  became  director  of 
the  enlarged  office  in  April,  1918.  The  first  report  called  for 
from  the  camps  was  ordered  by  a  telegram  on  September  14-, 
1917.  This  asked  for  a  report  on  the  number  of  cooks  avail- 
able. The  first  order  transferring  men  from  one  camp  to  an- 
other was  sent  out  on  October  5,  1917.  This  was  in  response 
to  a  cable  from  General  Pershing  for  bookbinders  and  press- 
men to  be  sent  overseas.  Shortly  after  this  a  standard  form 
of  report  was  adopted,  and  this  was  sent  out  to  the  camps  for 
a  report  to  be  made  as  of  October  15,  1917.  This  report  in- 
cluded the  total  supply  of  men  in  camp,  or  rather  a  count  of 
the  occupations  in  camp,  the  figures  being  secured  by  a  count 
of  the  tabs  on  the  cards  in  file.  This  gave  an  inflated  report, 
as  a  man  might  be  reported  for  more  than  one  occupation,  but 
it  was  believed  at  that  time  that  allowances  could  be  made  for 
this  inflation  in  ordering  from  the  supply  so  reported. 

In  the  early  days  of  the  National  Army  the  Depot  Brigades 
were  not  the  receiving  depots  for  men  that  they  later  became. 
Upon  arrival  in  camp  the  men  were  assigned  to  more  or  less 
permanent  organizations  without  any  regard  to  their  fitness  or 
qualifications.  Most  of  this  assigning  was  based  on  the  locality 
from  which  the  men  came ;  that  is,  men  from  the  same  section 
of  the  country  were  assigned  to  the  same  companies.  The 
work  of  classifying  the  men  as  they  arrived  was  not  provided 
for,  and  the  men  were  interviewed  and  classified  some  days 
after  they  had  been  in  camp  and  had  already  become  attached 
to  some  organization.  In  order  to  have  any  figures  that  could 
be  relied  upon  it  was  necessary  to  report  each  time,  the  num- 
ber of  men  that  had  been  classified  to  date.  In  counting  tabs 
instead  of  men,  a  man  who  was  an  expert  electrician  and  had 


392  HISTORY  OF  PERSONNEL 

also  had  experience  in  driving  a  car  sufficient  to  warrant  his 
being  tabbed  for  a  chauffeur  as  well,  would  be  counted  twice 
in  the  report,  once  as  an  electrician  and  once  as  a  chauffeur. 
It  was  necessary  to  do  this,  as  it  was  thought  that  there  might 
be  some  secondary  occupations  that  would  be  of  great  value 
to  the  Army  which  would  be  discovered  by  this  means.  With 
the  standardization  of  the  Index  of  Occupations  and  the 
Tables  of  Army  Needs  this  became  unnecessary,  as  the  job 
that  would  be  most  useful  to  the  Army  was  obviously  the  only 
one  to  report. 

As  the  occupational  reports  were  received  in  Washington 
they  were  posted  on  cards,  each  occupation  having  a  card.  It 
was  thus  possible  to  condense  the  summary  of  the  whole  Army 
into  a  file  about  eighteen  inches  long.  There  were  three  entries 
on  each  occupational  card  for  each  camp, — the  number  of 
green  tabs  or  "main  occupation,"  the  number  of  black  tabs  or 
"secondary  occupation,"  and  the  total  number  of  orange  tabs. 
This  system  of  reporting  men  was  satisfactory  as  long  as  the 
men  were  being  sent  to  the  camps  in  comparatively  small  in- 
crements and  were  not  being  held  in  a  temporary  organization 
like  the  Depot  Brigades. 

The  early  requisitions  for  men  were  mostly  "feelers"  or 
attempts  to  see  how  this  new  system  would  work  in  supplying 
men  of  special  qualifications.  The  first  requests  were  for  com- 
paratively small  numbers  of  men.  No  one  imagined  at  that 
time  that  the  demand  for  skilled  men  would  increase  to  such 
a  degree  that  on  November  11,  1918,  there  were  in  the  files 
of  the  Central  Distributing  Office  unfilled  requests  for  over 
half  a  million  men.  The  process  of  allotting  men  at  first  was 
very  simple.  The  cards  in  the  file  were  examined  to  see  where 
the  available  supply  was.  If  any  camp  showed  a  surplus  of 
the  occupation  needed  or  a  sufficient  number  to  warrant  with- 
drawing some  of  them,  an  order  was  sent  to  that  camp  to  ship 
those  men.  There  was  no  system  for  keeping  a  record  of  the 
balance  of  any  occupation  remaining  in  camp  after  issuing  an 
order,  as  new  men  were  constantly  arriving  and  being  classified, 


CENTRAL  DISTRIBUTING  OFFICE          393 

thus  changing  the  figures.  All  orders  for  the  transfer  of  men 
for  numbers  less  than  fifty  were  written  and  signed  in  the  Cen- 
tral Distributing  Office.  Larger  orders  had  the  informal  ap- 
proval of  the  Operations  Division,  and  were  then  written  and 
signed  in  this  office.  The  relative  merits  of  the  different 
requisitions  were  most  particularly  investigated  at  first,  and 
there  were  a  great  number  of  them  that  were  disapproved  in 
entirety.  Later  on,  as  the  plans  for  the  Army  were  stan- 
dardized by  Pershing's  6-phase  schedule,  only  such  organiza- 
tions as  had  been  authorized  and  were  on  the  priority  list  were 
considered  at  all  in  supplying  men.  As  the  number  of  requests 
for  men  increased  and  the  orders  that  had  to  be  issued  multi- 
plied, the  system  became  more  complex  and  new  methods  were 
devised  for  handling  requisitions. 

As  the  receiving  o-f  reports  and  requisitions  progressed, 
changes  were  made  to  accommodate  the  new  conditions.  It 
was  soon  evident  that  merely  counting  tabs  in  making  the 
reports  to  Washington  was  not  sufficient,  but  that  in  order  to 
keep  an  accurate  account  of  the  men  in  the  camps  the  count 
of  men,  not  tabs,  and  the  reporting  of  a  man  for  one  occupa- 
tion only  was  necessary.  This  necessitated  determining  a 
man's  main  occupation;  that  is,  taking  into  account  the  man's 
greatest  skill  and  his  greatest  usefulness  to  the  Army.  The 
early  report  forms  were  changed  to  meet  this  requirement. 
Black  tabs  were  adopted  for  a  man's  "secondary  skilled  occu- 
pation." As  the  black  tabs  did  not  do  away  with  the  duplica- 
tion in  count  they  were  finally  abandoned,  and  a  man  was 
reported  as  being  either  a  journeyman  or  apprentice  for  one 
occupation,  the  occupation  for  which  he  was  reported  being 
determined  by  the  personnel  adjutant  in  the  camp,  taking  into 
account  those  occupations  for  which  there  was  a  special  need. 
This  meant  that  in  some  cases  a  man  might  not  be  reported 
for  that  occupation  in  which  he  was  most  skilled,  as  some  other 
trade  with  which  he  was  familiar  was  of  far  more  value  to  the 
Army.  An  excellent  example  of  this  would  be  a  man  who  was 
a  skilled  carpenter,  and  also  had  been  experimenting  in  wire- 


394  HISTORY  OF  PERSONNEL 

less  telegraphy.  As  wireless  men  were  very  scarce  and  car- 
penters comparatively  numerous,  it  would  be  of  greater  value 
to  the  service  to  use  that  man  as  a  wireless  operator. 

With  the  increase  in  number  and  complexity  of  requisitions 
for  men  it  became  necessary  to  establish  a  standard  form  for 
making  requisitions.  After  some  experimenting  a  form  was 
finally  adopted  which  has  proved  very  satisfactory.  This  form 
gave  all  the  information  necessary  concerning  the  number  and 
kind  of  men  wanted,  the  organization  and  destination  to  which 
they  were  to  be  sent,  and  the  authorization  for  that  organiza- 
tion. Also  statements  as  to  clothing  and  accommodations  were 
made,  together  with  the  suggested  methods  of  securing  the 
men.  The  adoption  of  this  form  has  done  much  to  standardize 
the  terminology  of  the  requests,  and  has  made  it  possible  to 
examine  the  requisitions  more  thoroughly  as  to  questions  of 
priority  and  actual  needs  and  the  urgency  of  the  various 
requests.  In  addition,  the  use  of  this  form  has  expedited  the 
handling  of  the  requisitions  in  the  Central  Distributing  Office. 

SPECIALISTS  SUPPLIED  THROUGH  PROVOST 
MARSHAL  GENERAL'S  OFFICE 

A  source  of  supply  of  men  for  filling  requisitions  that  was 
much  used  in  the  first  days  of  the  Central  Office  was  the  Pro- 
vost Marshal  General.  When  the  questionnaire  was  issued  by 
the  Provost  Marshal  it  contained  information  concerning  the 
registrant's  qualifications  in  civil  life.  At  this  time  the  plan 
was  that  there  would  be  a  file  in  Washington  containing  cards 
which  would  make  it  possible  to  locate  men  of  special  qualifica- 
tions when  necessary.  This  proved  to  be  an  enormous  under- 
taking, and  at  the  time  of  the  armistice  the  file  had  not  been 
completed.  However,  arrangements  were  made  whereby  requi- 
sitions for  men  of  special  qualifications  could  be  sent  to  the 
Provost  Marshal  General  from  this  office,  and  have  him  locate 
the  men  and  order  them  to  their  proper  destinations.  Special 
requests  were  made  in  this  manner  for  some  56.000  men.  One 
of  the  drawbacks  to  this  method  of  securing  men  was  the  delay 


CENTRAL  DISTRIBUTING  OFFICE          395 

caused  by  the  cumbersome  form  that  had  to  be  made  out  for 
transmittal  to  the  Provost  Marshal  General's  Office,  and  also 
the  length  of  time  involved  in  locating  and  getting  the  men  into 
the  camps  after  the  requisition  had  been  filed  in  his  office. 
Moreover,  due  to  the  fact  that  the  card  catalogue  of  men  was 
not  complete,  the  method  of  locating  the  men  which  was 
adopted  was  similar  to  that  which  the  various  staff  corps  were 
using  at  that  time  for  locating  men  whom  they  were  authorized 
to  obtain  by  voluntary  induction.  It  was  seen  that  there  were 
two  competing  agencies  who  were  using  the  same  methods  of 
advertising  to  induce  the  men  to  be  inducted,  and  that  there 
was  an  unnecessary  duplication  of  effort.  As  a  result  the  use 
of  the  Provost  Marshal  General's  Office  to  obtain  men  of 
special  trade  ability  was  discontinued  in  March,  1918,  with 
the  exception  of  a  draft  of  stenographers  which  was  made  in 
August,  1918.  It  was  found  that  the  authority  to  individually 
induct  men  which  was  granted  to  the  various  staff  corps  from 
time  to  time  would  relieve  the  Provost  Marshal  General  of  the 
burden  of  carrying  on  an  advertising  campaign  to  locate  the 
men,  but  left  the  actual  inducting  of  the  men  in  his  power,  as 
the  Staff  Corps,  after  locating  the  men,  filled  out  the  necessary 
blanks  and  turned  them  over  to  the  Provost  Marshal  General 
for  action.  Late  in  October,  just  before  the  signing  of  the 
armistice,  plans  were  being  made  to  have  the  Provost  Marshal 
General  furnish  men  of  special  qualifications,  but  in  this 
case  the  men  were  to  be  sent  to  the  regular  camps  and  be  dis- 
tributed there  instead  of  being  sent  direct  to  the  organizations 
needing  the  men  as  was  the  case  formerly. 

ESTABLISHMENT  OF  DEPOT  BRIGADES  AS  REAL 
RECEIVING  DEPOTS 

• 

Due  to  the  scarcity  of  skilled  men  in  the  draft  it  soon  be- 
came evident  that  in  order  to  supply  the  Staff  Corps  with  even 
a  small  portion  of  the  men  that  they  asked  for,  it  would  be 
necessary  to  take  men  from  existing  organizations.  As  a  result, 
all  of  the  National  Army  divisions  that  were  then  forming  and 


396  HISTORY  OF  PERSONNEL 

beginning  their  training  programs  had  to  be  robbed  of  a  large 
portion  of  their  skilled  men.  Moreover,  this  policy  of  taking 
men  from  the  divisions  was  not  confined  to  the  National  Army. 
As  soon  as  the  National  Guard  had  been  classified,  reports 
were  called  for  from  all  of  their  divisions,  and  men  were 
drawn  from  their  organizations.  Even  the  Regular  Army  was 
not  excepted,  and  when  it  was  found  that  there  were  men  of 
rare  qualifications  in  any  organization  they  were  ordered  out 
to  fill  positions  where  those  qualifications  were  specially 
needed.  As  would  be  expected,  there  arose  a  universal  wail 
from  all  of  the  camps  about  this  "Personnel"  system  that  had 
been  imposed  upon  them  in  order  to  hunt  out  their  good  men 
and  take  them  away  from  them.  Altogether  about  72,000 
specialists  were  taken  from  these  organizations  before  a  new 
plan  was  adopted.  The  training  program  for  the  divisions  was 
seriously  handicapped  in  practically  all  cases.  On  December 
8,  1917,  it  was  necessary  to  issue  a  letter  to  all  of  the  com- 
manding officers  explaining  the  urgency  of  the  calls  being 
made  upon  them,  and  asking  their  cooperation  in  furnishing 
the  men  needed.  By  far  the  most  important  part  of  this  letter 
was  the  outline  of  the  system  that  was  to  be  adopted  of  receiv- 
ing men  into  the  Depot  Brigades  upon  their  arrival  in  camp 
and  their  retention  there  until  they  had  been  classified  and 
assigned  to  a  permanent  organization.  A  general  order  issued 
by  the  Adjutant  General  in  February,  1918,  established  this 
system,  and  made  it  necessary  for  orders  to  be  issued  from 
Washington  for  the  transfer  of  men  from  the  depot  brigades 
to  any  other  organization. 

This  letter  put  a  stop  to  the  despoiling  of  existing  organiza- 
tions, "although  in  some  cases  it  was  necessary  to  continue  it 
until  the  depot  brigades  were  in  running  order.  It  necessitated 
a  reorganization  in  Washington  of  the  method  of  handling  the 
orders  transferring  these  men,  as  all  men  were  to  be  assigned 
by  the  Central  Distributing  Office  instead  of  merely  specialists 
as  formerly. 

The  results  of  this  early  system  of  taking  men  from  the 


CENTRAL  DISTRIBUTING  OFFICE          397 

division  then  forming  was  the  saving  of  a  large  number  of 
valuable  men  and  placing  them  where  the  need  was  greatest. 
This  system  made  it  possible  to  supply  men  urgently  needed 
in  staff  corps  organizations  which  were  wanted  overseas  even 
before  the  infantry.  The  delay  in  the  training  programs  and 
the  getting  of  the  men  overseas  was  more  than  balanced  by  the 
numbers  of  valuable  men  that  were  given  to  the  staff  corps 
who  would  have  otherwise  been  entirely  lost  in  infantry  divi- 
sions. Had  it  been  possible  to  classify  the  men  as  they  arrived 
and  assign  them  properly,  as  was  done  when  the  depot 
brigades  were  reorganized,  there  would  have  been  no  delay  or 
inconvenience.  The  experience  gained  in  filling  these  requisi- 
tions made  it  possible  to  handle  the  draft  supply  more  effi- 
ciently when  the  new  system  of  depot  brigades  was  organized. 
About  February  1,  1918,  the  order  establishing  the  depot 
brigades  as  receiving  depots  was  issued.  The  men  were  to  be 
classified  as  they  arrived,  and  reported  to  Washington.  Orders 
were  then  to  be  issued  by  the  War  Department  assigning  these 
men  to  the  organizations  where  it  was  deemed  that  they  were 
most  urgently  needed.  The  report  forms  called  for  two  items 
for  each  occupation  listed;  the  number  of  journeymen  and  the 
number  of  apprentices  for  that  occupation.  The  list  of  occu-a 
pations  in  the  report  did  not  cover  the  whole  number  in  the 
Index  of  Occupations,  but  only  those  for  which  there  was  an 
urgent  demand  at  that  time,  or  for  which  there  was  a  great  ^ 
shortage  of  skilled  men  as  shown  in  former  reports.  This 
method  of  reporting  changed  the  system  of  handling  the  men 
in  the  Central  Distributing  Office.  Supply  books  were  sub- 
stituted for  the  card  file  that  was  formerly  used,  and  accurate 
count  was  kept  of  the  men  that  had  been  ordered  out  and  the 
balance  remaining  in  the  camp.  The  system  as  finally  used 
is  described  in  detail  in  the  next  chapter.  The  improvement 
brought  about  by  this  new  order  was  very  great.  It  made  it 
possible  for  the  camps  to  examine  the  men  more  thoroughly, 
and  also  for  the  War  Department  to  distribute  them  with  more 
intelligence  and  dispatch. 


CHAPTER  32 

THE  DISTRIBUTION  OF  OCCUPATIONAL 
SPECIALISTS 

ORGANIZATION  OF  CENTRAL  DISTRIBUTING 
OFFICE 

With  the  final  establishment  of  the  depot  brigades  as  receiv- 
ing depots  in  all  the  camps,  the  work  of  the  Central  Distribut- 
ing Office  was  greatly  enlarged.  All  the  orders  distributing 
men  had  to  pass  through  that  office,  as  well  as  orders  for  occu- 
pational specialists  to  fill  special  needs. 

About  this  time  the  requisitions  from  all  sources  were  pour- 
ing in  at  an  enormous  rate.  In  March,  1918,  four  men  and 
two  clerks  were  handling  the  work.  In  April,  Mr.  Wm.  B. 
Hale  took  charge  of  the  Central  Distributing  Office.  By  Sep- 
tember the  force  had  expanded  to  over  fifty.  It  was  found 
necessary  to  divide  the  office  in  two  sections :  first,  the  Requisi- 
tion Demand  Section;  and  second,  the  Supply  Section.  The 
functions  of  the  Requisition  Demand  Section  were  the  receiv- 
ing, classifying,  and  editing  of  all  requisitions  and  the  prepar- 
ation of  them  for  action  by  the  Operations  Division,  Gen- 
eral Staff.  The  Supply  Section  received  all  the  reports  of 
men  that  had  been  received  in  camp,  and  allotted  them  to  fill 
the  requisitions  that  had  been  approved  for  action.  This  divi- 
sion of  the  office  aided  greatly  in  expediting  the  requisitions, 
and  made  more  sure  that  the  proper  men  were  supplied. 

Another  section  of  the  office,  which  is  described  in  more 
detail  in  another  chapter,  was  the  Industrial  Furlough  Section, 
where  men  of  rare  qualifications  were  selected  to  be  furloughed 
back  to  industry.  This  work  was  under  the  supervision  of 
Mr.  L.  R.  Frazier. 

398 


OCCUPATIONAL  SPECIALISTS  399 

THE  REQUISITION  DEMAND  SECTION 

The  Requisition  Demand  Section  was  the  receiving  office  for 
all  requests  for  men,  and  was  in  charge  of  Mr.  A.  C.  Robinson 
III  and  Mr.  R.  T.  Bickell.  These  requests  were  made  on  the 
standard  requisition  blank  CCP-14,  which  was  made  out  in 
quadruplicate,  a  white  original,  and  yellow,  pink  and  blue 
copies.  All  four  were  numbered  upon  receipt  in  this  office  and 
the  blue  copies  so  numbered  were  returned  to  the  sender  as  an 
acknowledgement  of  the  receipt  of  the  requisition  and  for  his 
reference.  The  numbers  that  were  assigned  to  the  requisitions 
were  given  serially  by  Staff  Corps,  the  thousand  digit  indicat- 
ing the  particular  branch  of  the  service  from  which  the  requisi- 
tion came,  as  for  instance,  number  three  was  the  Engineer's 
thousand  digit  and  all  the  Engineer  requisitions  were  then 
numbered  in  the  order  of  their  receipt,  thus  3001,  3002,  3003, 
etc.  In  like  manner,  four  indicated  Field  Artillery  requisi- 
tions; five  the  Medical  Department  requisitions;  and  six  the 
Air  Service  requisitions,  and  so  on.  As  soon  as  the  requisitions 
had  been  numbered  they  were  entered  in  the  Record  Book. 
This  book  gave  all  necessary  information  as  to  the  organization 
to  which  the  men  were  to  be  sent,  the  destination,  the  number 
of  men,  and  furthermore,  all  action  that  was  taken  in  the  Cen- 
tral Distributing  Office  as  affecting  that  requisition.  The  white 
copy  of  the  requisition  was  then  filed  in  Reference  Books,  each 
staff  corps  having  a  book  of  its  own.  A  working  sheet,  known 
as  the  Allotment  Sheet,  was  then  made  out  from  the  yellow 
copy.  At  this  point  the  personnel  officer  of  the  staff  corps 
that  submitted  the  requisition  was  consulted  as  to  the  details 
of  his  particular  requisition.  Such  matters  as  the  number 
and  qualifications  of  the  men  requested,  the  urgency  of  the 
requisition,  and  other  points  of  vital  interest  were  taken  up. 
The  requisitions  were  also  edited,  in  order  to  have  them  con- 
form with  the  Army  Trade  Specifications  and  with  the  exact 
supply  of  men  in  the  camps.  Substitutions  in  occupations  were 
indicated  when  necessary;  that  is,  when  the  exact  occupation 


400 HISTORY  OF  PERSONNEL 

requested  was  not  available,  the  occupation  that  most  nearly 
filled  the  need  was  substituted,  as  indicated  in  Trade  Specifica- 
tions. When  this  operation  was  complete,  the  requisition  and 
the  working  sheet  were  then  ready  for  the  approval  of  the 
officer  who  represented  the  Operations  Division  of  the  General 
Staff.  The  various  requisitions  were  submitted  to  this  officer, 
and  his  approval  or  disapproval  were  indicated  thereon.  If 
the  requisition  was  to  be  filled  that  fact  was  noted  in  the 
Record  Book,  the  requisition  was  dated,  the  yellow  copy 
removed,  and  the  working  sheet  sent  to  the  Supply  Section  to 
be  filled  from  the  sources  available  as  indicated  by  the  Opera- 
tions Division.  The  yellow  copy  was  then  filed  in  a  book  by 
staff  corps,  each  staff  corps  having  a  book  for  this  purpose. 
Order  Sheets  were  filed  with  each  requisition,  and  on  these 
Order  Sheets  summaries  of,  all  orders  were  briefed,  and  all 
reports  of  men  transferred  or  shortages  were  posted  thereon. 
At  the  same  time  that  the  yellow  copy  was  being  worked  on, 
the  Occupational  Demand  File  was  being  made  up  from  the 
pink  copy  of  the  requisition.  This  file  consisted  of  a  set  of 
cards,  one  card  for  each  occupation.  On  this  was  posted  the 
demand  for  that  occupation  which  had  been  made  by  each  of 
the  staff  corps.  This  file  was  of  great  value  in  determining 
which  occupations  should  be  reported  on  by  the  camps.  It 
also  served  as  a  very  handy  reference  in  placing  men;  thus, 
if  a  supply  of  a  certain  occupation  existed  anywhere,  the 
organization  needing  men  of  that  kind  was  immediately  evident 
by  extracting  that  particular  occupational  card  from  the  De- 
mand File.  Copies  of  all  orders  that  were  written  by  the 
Supply  Section  were  briefed  in  the  Order  Book,  as  indicated 
above.  The  progress  of  a  requisition  could  thus  be  traced  at 
any  time.  The  Record  Book  would  tell  whether  or  not  the 
requisition  had  been  approved,  and  if  so,  when  and  for  what 
sort  of  men ;  while  the  Order  Book  would  give  at  a  glance,  the 
action  that  had  been  taken  by  the  Supply  Section,  as  well  as 
the  transfer  report  from  various  camps. 

It  was  one  of  the  functions  of  the  Requisition  Section  to 


OCCUPATIONAL  SPECIALISTS  401 

furnish  information  to  the  various  Personnel  Officers  of  the 
Staff  Corps  as  to  the  status  of  their  requisitions.  This  was 
readily  done  from  the  sources  mentioned  above.  Another  ex- 
tremely important  function  was  the  tabulating  of  requisitions 
on  hand,  in  order  that  the  questions  of  priority  might  be  deter- 
mined, and  also  to  indicate  the  character  and  size  of  the  drafts 
of  men  that  would  be  necessary  to  fill  the  demands  on  hand. 

THE  SUPPLY  SECTION 

The  reports  of  men  received  in  the  camps  were  sent  to  the 
Supply  Section  after  each  draft  increment.  The  final  form 
of  this  report,  known  as  CCP-15,  was  quite  different  from  the 
early  Periodic  Reports  which  were  required  of  the  camps.  The 
occupations  on  which  a  report  was  desired  were  determined  by 
the  demand  on  hand  for  that  occupation.  The  report  blanks 
were  mailed  out  at  stated  intervals,  to  be  filled  in  by  the  camps 
and  returned.  The  number  of  occupations  in  this  new  form  of 
report  was  much  greater  than  in  the  older  reports.  An  inno- 
vation which  proved  very  valuable  was  that  of  placing  a  star 
opposite  those  occupations  that  were  especially  valuable  or 
rare.  By  releasing  only  unstarred  occupations  to  organiza- 
tions in  urgent  need  of  men  not  requiring  any  special  trade 
ability,  men  of  especially  valuable  qualifications  were  saved  for 
particular  positions  in  the  army.  It  was  also  used  extensively 
in  locating  men  who  were  to  be  furloughed  to  industry.  The 
reports  were  made  up  in  three  parts,  one  for  general  service 
men,  one  for  limited  service  men,  and  one  for  colored  men.  As 
a  result  the  Supply  Section  of  the  Distributing  Office  was  di- 
vided into  three  parts  to  correspond  to  the  sources  of  supply. 
To  these  three  sources  must  be  added  an  additional  source  of 
supply,  namely,  the  men  from  the  National  Army  Training 
Detachments,  who  were  also  distributed  by  this  office.  The 
actual  methods  of  handling  the  distribution  of  these  men  dif- 
fered in  the  cases  of  the  general  service  and  the  limited  service 
men,  due  mainly  to  the  difference  in  the  character  and  number 
of  the  men  to  be  distributed.  However,  the  methods  of  filling 


402  HISTORY  OF  PERSONNEL 

the  requisitions  were  practically  identical.  In  handling  the 
general  service  men  the  reports  were  posted  in  the  regional 
supply  books  as  soon  as  received.  The  country  was  divided 
into  sections,  and  the  camps  falling  within  a  particular  section 
were  entered  in  one  supply  book,  and  those  for  another  section 
in  another  book,  and  so  on.  These  books  had  the  occupations 
entered  on  the  right-hand  side  of  the  page,  about  nine  occupa- 
tions to  the  page,  and  the  camps  were  entered  along  the  top. 
The  supply  for  each  occupation  for  any  camp  was  thus  posted. 
Any  withdrawals  to  fill  requisitions  were  entered  in  these 
books.  The  number  of  men  taken  and  the  number  of  the 
requisitions  which  they  were  to  fill  were  entered  and  the  bal- 
ance remaining  was  calculated ;  thus  information  as  to  the  sup- 
ply of  any  occupation  at  any  camp  was  immediately  available. 

As  men  were  allotted  from  the  camps,  entries  were  made  on 
the  Allotment  or  Working  Sheet  of  each  requisition.  These 
allotment  sheets  were  filed  in  books  to  correspond  to  the 
regional  supply  books;  thus,  in  filling  a  requisition  in  the 
Southeast  section  of  the  United  States  the  Southeastern  Sup- 
ply Book  was  first  consulted,  and  allotments  made  from  it  as 
far  as  possible.  If  there  were  no  men  of  the  qualifications 
desired  to  fill  a  particular  requisition  in  the  supply  book  for 
that  section  of  the  country,  the  supply  book  of  an  adjoining 
section  was  consulted.  In  making  out  these  allotments  care 
was  taken  to  give  the  shortest  railroad  journey  possible,  and 
to  make  the  general  trend  of  all  movements  of  men  from  the 
west  to  the  east.  When  the  allotment  sheets  had  been  filled 
as  far  as  possible  they  were  given  to  the  typist  who  wrote  the 
actual  orders  to  the  camps  for  men.  Throughout  all  this  proc- 
ess, great  care  was  taken  to  insure  accuracy,  and  a  constant 
checking  was  necessary  to  avoid  errors.  Mr.  John  C.  Burg 
was  responsible  for  the  development  of  the  Supply  Section. 

The  limited  service  supply  was  handled  in  a  slightly  dif- 
ferent manner.  The  methods  employed  were  developed  by 
Mr.  Hathaway  Watson.  The  occupational  reports  were  posted 
on  cards  instead  of  in  supply  books.  There  was  a  card  for 


OCCUPATIONAL  SPECIALISTS  403 

each  occupation  which  had  a  place  for  entries  from  any  of  the 
camps  which  made  reports.  Each  supply  of  men  was  thus 
entered  under  the  proper  heading.  Due  to  the  fact  that  there 
were  two  kinds  of  limited  service  men,  namely  C-l  and  C-2, 
it  was  necessary  to  indicate  the  particular  variety  on  each 
card.  In  order  to  simplify  matters  it  was  found  advisable  to 
have  cards  of  two  colors  for  each  occupation,  one  for  the 
apprentices  and  one  for  the  journeymen.  Any  withdrawals 
were  posted  on  these  cards  by  entering  the  requisition  number, 
and  keeping  a  running  balance  of  the  supply  remaining  after 
the  men  were  withdrawn  to  fill  the  requisition.  Due  to  the 
smaller  number  of  men  that  had  to  be  handled  as  compared 
with  the  general  service  men,  and  also  due  to  the  nature  of 
men  supplied,  it  was  found  that  this  card  file  worked  quite  as 
well  as  the  supply  book,  and  in  most  cases  the  time  required 
to  fill  a  requisition  was  much  less  than  that  required  by  the 
other  system.  The  writing  of  orders  from  the  allotment  sheet 
was  similar  to  that  on  the  general  service  orders. 

Due  to  the  smaller  numbers  of  men  involved  in  the  Colored 
and  the  National  Army  Training  Detachments'  reports,  the 
actual  distribution  of  these  classes  constituted  less  of  a  prob- 
lem than  either  of  the  two  just  described.  The  method  of 
distributing,  however,  was  the  same  as  for  the  general  service 
men. 

COOPERATION  WITH  OPERATIONS  DIVISION, 
GENERAL  STAFF 

Throughout  all  of  the  operations  above  described,  the  Opera- 
tions Division  of  the  General  Staff  was  in  the  closest  coopera- 
tion with  this  office.  In  fact,  the  Central  Distributing  Office 
was  functioning  for  the  Operations  Division.  It  was  the 
vehicle  which  carried  out  the  programs  of  the  General  Staff, 
as  all  orders  for  the  moving  of  men  were  written  there.  Each 
requisition  had  to  have  the  approval  of  the  Operations  Division 
before  it  could  be  filled.  From  time  to  time  the  Central  Dis- 
tributing Office  would  present  the  Operations  Division  with 


404 HISTORY  OF  PERSONNEL 

statements  of  the  number  and  character  of  the  requisitions  on 
hand,  and  of  their  relative  importance  as  determined  in  con- 
ferences with  representatives  of  the  Staff  Corps.  Suggestions 
as  to  the  best  method  of  filling  the  requisitions  were  made. 
Lt.  Col.  R.  H.  Kimball  of  the  Operations  Division  would 
direct,  in  a  general  way,  the  policies  to  be  followed  in  filling 
these  requests,  and  the  Central  Distributing  Office  would  pro- 
ceed to  carry  them  out  in  detail,  seeing  that  a  particular  organ- 
ization requesting  men  not  only  got  the  number  of  men  asked 
for  but  the  right  kind  as  well.  All  orders  were  written  in  the 
Central  Distributing  Office,  and  had  to  have  the  signature  of 
the  Director  of  Operations  before  they  could  be  signed  and 
sent  out  by  the  Adjutant  General.  This  insured  a  final  check 
by  the  Operations  Division  that  the  work  was  being  carried 
out  in  accordance  with  their  wishes.  So  close  were  the  con- 
nections between  the  Central  Distributing  Office  and  the 
Operations  Division  that  Maj.  H.  M.  Rayner  of  the  Opera- 
tions Division  was  detailed  to  duty  in  the  Central  Distributing 
Office. 

COOPERATION  WITH   THE   STAFF  CORPS 

In  a  like  manner,  the  Central  Distributing  Office  was  in 
close  connection  with  the  representatives  of  the  Staff  Corps. 
Conferences  were  held  frequently  to  go  over  the  problems  in 
each  of  the  corps.  At  these  conferences  matters  such  as  the 
relative  importance  and  urgency  of  the  various  requisitions, 
the  character  of  the  men  needed,  and  the  type  of  men  received, 
were  discussed.  Frequent  attempts  were  made  to  obtain  a 
definite  program  from  each  of  the  staff  corps  which  would 
cover  their  future  needs.  This  was  felt  to  be  of  vital  impor- 
tance, as  it  would  be  a  basis  for  deciding  upon  the  number  and 
character  of  drafts  that  would  be  necessary  in  the  future.  It 
would  also  be  of  great  value  in  determining  just  what  training 
should  be  given  to  the  men  in  the  National  Army  Training 
Detachments  in  order  to  supply  the  deficiency  of  skilled  men 
in  the  draft.  The  only  program  that  had  been  available  was 


OCCUPATIONAL  SPECIALISTS  405 

the  Pershing  6-phase  schedule,  which  was  outgrown  almost  as 
soon  as  received.  The  result  was  a  sort  of  hand-to-mouth  ex- 
istence in  the  Staff  Corps,  as  many  of  the  requisitions  were 
based  on  cabled  demands  for  certain  organizations.  By  Octo- 
ber, 1918,  however,  matters  had  begun  to  shape  themselves 
somewhat  better,  and  at  the  time  of  the  armistice  orders  had 
been  issued  to  all  staff  corps  to  furnish  the  Central  Distribut- 
ing Office  with  their  programs  up  until  June,  1919.  Special 
forms  were  prepared  for  these  reports.  Conferences  had  been 
held  to  discuss  the  whole  problem  and  to  get  all  of  the  esti- 
mates on  a  uniform  basis.  Besides  these  conferences  to  dis- 
cuss general  problems,  there  were  almost  daily  informal  con- 
ferences concerning  the  requisitions  themselves  and  their 
status.  An  even  closer  liaison  was  being  arranged  for  at  the 
time  of  the  armistice,  when  it  was  planned  to  have  a  represen- 
tative of  each  of  the  staff  corps  detailed  to  work  in  connection 
with  the  Central  Distributing  Office. 

DISTRIBUTION  OF  DRAFT  INCREMENTS 

The  methods  employed  in  filling  requisitions  for  various 
sources  of  supply  have  been  discussed.  It  now  remains  to 
look  at  the  whole  situation  from  a  different  angle,  namely,  that 
of  distributing  the  various  draft  increments  as  they  were  sent 
into  the  camps.  As  each  type  of  draft  had  its  special  prob- 
lems they  will  be  discussed  separately. 

The  general  service  draft  was  the  largest  and  most  frequent. 
One  problem  was  to  get  one  increment  distributed  and  out  of 
the  way  before  the  next  arrived  in  camp.  Speed  was  essential, 
but  at  the  same  time  men  of  qualifications  that  were  needed 
could  not  be  overlooked.  There  was  rarely  any  difficulty  in 
disposing  of  the  general  service  men.  The  need  for  men  was 
so  great  that  the  larger  part  of  the  draft  was  swallowed  up 
without  leaving  any  trace  behind.  There  were,  however,  occa- 
sional occupations  which  were  in  excess  of  the  demand,  and  in 
placing  these  men  some  difficulties  were  experienced. 

The  limited  service  supply,  on  the  other  hand,  furnished 


406  HISTORY  OF  PERSONNEL 

many  complexities.  This  supply  was  composed  of  two  sorts 
of  men ;  first  men  from  the  Development  Battalions  in  camps ; 
and  second,  the  limited  service  drafts.  The  Development  Bat- 
talions were  organized  with  the  idea  of  refitting  as  many  men 
as  possible  of  those  who  had  been  rejected  as  unfit.  They 
were  to  undergo  a  special  course  of  training  in  camp,  and  as 
they  finished  these  courses  they  were  to  be  reported  to  Wash- 
ington for  distribution.  It  was  soon  seen  that  to  give  only*' 
Class  A  men  to  fill  all  requisitions  would  be  impossible  due  to 
the  scarcity  of  men,  and  the  whole  problem  of  the  Army  was 
gone  over  to  see  where  limited  service  men  could  be  used. 
Every  organization  which  was  for  domestic  service  only  was 
thereupon  authorized  to  have  limited  service  men  only.  This 
immediately  put  a  great  demand  on  the  supply  of  limited  serv- 
ice men,  and  the  product  of  the  Development  Battalions  was 
not  sufficient  to  fill  these  needs.  Special  drafts  of  limited  serv- 
ice men  were  then  called,  and  as  the  use  of  these  men  grew 
the  problems  increased,  as  it  was  found  that  certain  overseas 
organizations  could  use  limited  service  men  as  well.  In  the 
light  of  these  developments,  the  Central  Distributing  Office 
had  to  arrange  all  of  its  operations ;  requisitions  had  to  be 
carefully  inspected  to  see  whether  they  should  have  general  or 
limited  service  men,  and  if  limited  service,  whether  they  were 
to  be  Class  C-l  or  Class  C-2.  As  in  the  case  of  general  service 
men,  the  chief  concern  was  not  so  much  disposing  of  the  supply 
as  trying  to  make  it  fill  all  requisitions.  One  of  the  plans  was 
to  have  limited  service  men  replace  general  service  men  when- 
ever possible,  in  order  that  the  latter  might  be  used  for  combat 
service,  and  owing  to  the  scarcity  of  general  service  men — due 
to  lack  of  legislation  in  raising  the  draft  ages  and  the  epidemic 
of  Spanish  influenza — the  problem  became  very  acute  in  Octo- 
ber. Moreover,  there  was  difficulty  in  obtaining  men  who  had 
been  sent  to  camp  in  the  limited  service  drafts,  as  they  were 
so  urgently  needed  that  they  were  appropriated  before  orders 
could  be  issued  covering  them.  An  example  of  this  was  the 
limited  service  draft  of  stenographers  and  typists,  a  large  por- 


OCCUPATIONAL  SPECIALISTS  407 

tion  of  which  was  never  recovered,  as  a  result  of  the  acute 
need  for  men  of  these  special  qualifications  in  the  camps.  An- 
other problem  that  presented  itself  was  the  inability  to  be  sure 
that  in  ordering  C-2  men  they  would  not  be  so  poor  physically 
that  they  could  not  perform  the  work  required  of  them.  An 
order  for  C-2  men  occasionally  brought  all  the  "leftovers"  in 
camp,  and  organizations  receiving  these  men  naturally  com- 
plained and  demanded  better  treatment. 

The  colored  draft  problem  was  perhaps  the  simplest  of  all. 
The  percentage  of  skill  in  the  colored  draft  was  very  low,  and 
the  organizations  of  colored  men  did  not  require  as  large  a 
number  of  specialists  as  the  other  organizations.  The  reports 
from  the  camps  were  very  brief.  Few  occupations  were  listed. 
Most  of  the  colored  organizations  were  engineer  service  bat- 
talions, stevedore  regiments,  labor  companies,  etc.,  which 
required  few  men  of  skill.  There  were,  however,  cases  where 
skilled  men  were  needed  and  needed  badly,  and  cafe  was  taken 
to  place  them.  As  can  be  readily  seen,  most  of  the  orders 
issued  were  comparatively  simple  as  compared  with  those  for 
white  men.  Also,  the  colored  drafts  were  not  so  large  as  the 
white,  which  made  the  work  of  the  Central  Distributing  Office 
in  this  particular  branch  much  less. 

The  National  Army  Training  Detachment  became  one  of 
the  most  difficult  of  all  of  the  sources  of  supply  to  distribute. 
The  men  who  had  been  trained  in  these  schools  were  available 
for  distribution  after  a  six  weeks'  course.  The  Central  Dis- 
tributing  Office  controlled  the  distribution  of  these  men,  using 
them  to  fiH  requisitions  in  the  same  manner  as  the  other  sources 
of  supply.  Here  the  problem  was  to  distribute  a  highly  spe- 
cialized group  of  men  as  compared  with  those  in  the  draft, 
and  to  misplace  a  man  who  had  been  trained  was  especially  to 
be  avoided.  The  difficulties,  however,  were  that  there  were 
cases  where  the  training  program  did  not  entirely  agree  with 
the  most  urgent  demand,  and  it  was  not  very  unusual  to  have 
a  surplus  in  one  occupation  and  a  very  great  shortage  in  an- 
other. This  apparent  lack  of  co-ordination  was  due,  in  a  large 


408  HISTORY  OF  PERSONNEL 

measure,  to  the  failure  of  the  Staff  Corps  to  state  a  definite 
program.  As  has  previously  been  stated,  Pershing's  6-phase 
schedule  was  the  last  that  was  available,  and  it  was  out  of  date 
by  May,  1918.  The  new  report  which  was  called  for  from  the 
Staff  Corps  in  November,  1918,  would  have  straightened  out 
all  of  this  tangle,  and  it  would  have  been  possible  to  train 
men  for  places  for  which  there  was  a  great  need. 

While  the  primary  functions  of  the  Central  Distributing 
Office  were  the  distribution  of  occupational  specialists,  large 
numbers  of  unskilled  men  were  sent  to  fill  requisitions.  In 
all,  1,191,000  men  were  ordered  out  to  fill  various  organiza- 
tions, while  requisitions  for  1,600,000  had  been  received. 

Further  details  as  to  the  procedure  followed  in  distributing 
men,  not  only  in  the  Central  Distributing  Office  but  also  in 
the  Camp  Personnel  Offices,  is  presented  in  Chapter  VII  of 
Volume  II. 


CHAPTER  33 

DRAFT    STATISTICS    AND    THEIR    RELATION 
TO   THE  ARMY  PROGRAM 

The  two  preceding  chapters  of  this  section  have  traced  the 
development  of  the  Central  Distributing  Office  and  described 
the  principal  steps  in  the  process  of  distributing  from  the 
draft  those  specialists  who  are  required  in  the  various  branches 
of  the  Army.  The  present  chapter  is  concerned  with  what 
might  be  termed  the  research  end  of  the  work,  as  it  had  no 
active  part  in  the  allotment  of  men,  except  insofar  as  its 
investigations  and  recommendations  guided  the  activities  of 
the  operating  end  of  the  office. 

ASSISTANCE  TO  THE  COMMITTEE  ON  EDUCATION 
AND  SPECIAL  TRAINING 

Most  of  the  draft  statistics  took  the  form  of  the  occupational 
yield  of  past  drafts  as  a  basis  for  estimating  what  might  be 
expected  from  future  drafts.  This  type  of  information  proved 
very  valuable  and  was  applied  in  a  diversity  of  ways.  For 
instance,  although  it  had  early  become  apparent  to  those  who 
were  in  close  touch  with  the  personnel  problem  that  the  supply 
of  certain  types  of  specialists  received  in  the  ordinary  run  of 
the  draft  would  soon  prove  far  too  small  for  the  Army's  needs, 
it  was  necessary  to  have  concrete,  figures  to  demonstrate  to  the 
officials  in  authority  that  the  early  establishment  of  Army 
Trade  Schools  was  imperative.  Accordingly,  in  January, 
1918,  under  the  direction  of  Dr.  Bingham,  figures  were  com- 
piled from  the  occupational  reports  from  divisions  to  indicate 
the  available  supply  of  specialists  and  these  figures  were  bal- 
anced against  the  estimated  needs  of  the  thirty  divisions  then 
authorized  and  the  Staff  Corps  until  May  1,  1918, 

409 


410  HISTORY  OF  PERSONNEL 

The  appalling  shortages  in  most  of  the  occupations  demon- 
strated conclusively  the  necessity  of  taking  prompt  action  to 
increase  the  number  of  specialists  in  the  National  Army  as 
well  as  to  conserve,  by  correct  placement,  those  already  there. 
The  result  was  the  establishment,  early  in  February,  of  the 
Committee  on  Education  and  Special  Training,  charged,  as  is 
explained  more  in  detail  in  a  later  chapter,  with  taking  what- 
ever measures  might  be  necessary  to  guarantee  an  adequate 
supply  of  specialists. 

The  receipt  shortly  afterwards  of  General  Pershing's  six- 
phase  project  for  the  systematic  building  of  America's  Army 
in  France,  and  the  summary  of  that  program  on  an  occupa- 
tional basis  which  was  prepared  by  this  office,  completely  jus- 
tified the  establishment  of  this  new  educational  committee 
and  guided  it  in  its  development.  At  various  times  throughout 
the  year  conferences  were  held  with  its  representatives  at 
which  the  present  needs  of  the  Army  were  discussed  with  a 
view  to  shaping  the  product  of  the  schools  to  satisfy  those 
needs.  But  with  the  exception  of  a  few  general  recommenda- 
tions, subsequent  to  the  first  figures  based  on  General 
Pershing's  original  program,  the  assistance  rendered  to  the 
Committee  on  Education  and  Special  Training  along  this  line 
was  not  as  substantial  as  might  have  been  desired,  due  largely 
to  the  rapidly  changing  and  increasing  army  program.  Just 
at  the  signing  of  the  armistice,  however,  when,  fortified  by  its 
knowledge  of  the  actual  military  superiority  of  the  Allies,  the 
General  Staff  had  begun  to  hit  its  stride  in  the  scientific  and 
orderly  construction  of  a  crushing  war  machine  with  its  essen- 
tial components — divisions,  corps  and  army  troops,  replace- 
ments and  supply  troops — geared  up  to  each  other  in  proper 
ratio  and  with  but  slight  prospect  that  a  repetition  of  the 
German  drive  of  1918  would  again  necessitate  an  emergency 
shifting  of  gears,  a  comprehensive  plan  was  about  to  be  put 
into  operation  for  summarizing  the  monthly  occupational 
requirements  of  each  and  every  military  unit  to  be  organized 
up  to  July  1,  1919.  It  was  contemplated  that  this  informa- 


DRAFT  STA TISTICS  41 1 

tion,  in  addition  to  facilitating  the  efficient  manipulation  and 
assignment  of  personnel  from  the  draft,  would  enable  the  edu- 
cational authorities  to  determine  with  an  exactitude  heretofore 
impossible  what  courses  ought  to  be  given  in  the  Army 
Schools.  A  more  detailed  description  of  the  proposed  occupa- 
tional summary  of  the  army  program  from  November  1,  1918, 
to  July  1,  1919,  is  given  later  in  this  chapter. 

From  the  foregoing  illustration  it  has  perhaps  become  evi- 
dent that  the  statistics  section  of  the  Central  Distributing 
Office  was  mainly  concerned  with  forecasting  (a)  the  occupa- 
tional requirements  of  the  Army,  and  (b)  the  probable  supply 
of  occupational  specialists  from  the  draft,  with  a  view  to  see- 
ing to  it  that  the  necessary  steps  were  taken  to  save  from 
blanket  assignment  to  combat  organizations  every  specialist 
who  was  more  urgently  needed  in  his  own  trade  in  a  technical 
organization  than  as  a  fighting  man,  and  also,  by  foreseeing 
shortages  in  specialists,  not  only  to  prevent  their  loss  through 
mis-assignment,  but  also  to  advise  upon  the  necessity  of  secur- 
ing them  through  special  agencies — voluntary  induction, 
special  draft,  or  army  schools. 

PERSONNEL  SUPPLY  AND  DEMAND  STATISTICS 
FOR  THE  PROVOST  MARSHAL  GENERAL 

The  most  formidable  piece  of  statistical  work  which  was 
undertaken  by  the  Distributing  Office  was  a  comprehensive 
summary,  primarily  for  the  information  of  the  Provost  Mar- 
shal General,  of  the  prospective  occupational  requirements  of 
the  Army  from  May  1,  1918,  to  January  1,  1919,  with  esti- 
mates as  to  the  occupational  shortages  which  might  be  encoun- 
tered if  the  only  supply  were  the  ordinary  run  of  the  draft. 
It  was  undertaken  at  the  request  of  the  Operations  Division, 
General  Staff,  for  the  purpose  of  enabling  the  Provost  Marshal 
General  to  determine  approximately  to  what  extent  it  might 
be  necessary  lor  the  Army  to  make  inroads  upon  industry 
through  special  drafts  or  individual  inductions  in  order  to 
secure  its  necessary  quota  of  specialists,  and  to  assist  him  in 


412 HISTORY  OF  PERSONNEL 

making  early  preparation  for  these  drafts  and  inductions.  It 
was  to  prepare  this  statement  that  Mr.  William  B.  Hale,  later 
the  Director  of  the  Central  Distributing  Office,  was  called  by 
the  Committee  on  Classification  of  Personnel  from  his  work 
with  the  National  Research  Council,  and  he  was  assisted  in 
his  task  by  Mr.  L.  R.  Frazier. 

The  preliminary  survey  of  the  problem  indicated  that  many 
difficulties  would  be  met  and  that  it  would  be  several  weeks 
before  anything  of  value  could  be  evolved  from  the  mass  of 
miscellaneous  and  incomplete  information  which  was  available. 
General  Pershing's  partially  completed  six-phase  project  and 
what  was  then  the  plan  of  the  General  Staff  to  draft  1,000,000 
men  between  May  1  and  January  1  formed  the  bases  upon 
which  the  statement  was  constructed.  There  were  no  tables 
of  occupational  needs  for  other  than  divisional  organizations 
and  it  was  necessary  to  rely  on  the  rather  rough  occupational 
interpretations  which  the  Staff  Corps  concerned  made  of  their 
particular  parts  of  the  program.  This  fact,  coupled  with  the 
necessity  of  determining  by  occupations  the  extent  to  which 
each  organization  had  been  completed  on  May  1,  prolonged 
the  work  considerably.  The  questions  of  what  allowance  to 
make  for  replacements,  and  of  what  should  be  the  proportion 
of  combat  to  supply  troops,  offered  further  obstacles.  The 
former  was  settled  arbitrarily  by  allowing  three  per  cent,  per 
month  of  the  actual  strength  for  replacements.  This  was  done 
upon  the  advice  of  the  General  Staff  as  being  the  best  informa- 
tion available  at  the  time.  The  second  question  was  handled 
by  assuming  that  General  Pershing's  project  for  the  Services 
of  Supply  would  be  carried  out  and  that  the  balance  of  the 
1,000,000  men  would  be  available  for  combat  units. 

When  the  statement  had  been  completed  and  all  the  sources 
of  error  and  unavoidable  inaccuracies  had  been  explained  to 
the  Operations  Division,  it  was  decided  that  although  the 
statement  was  as  complete  and  accurate  as  was*  possible  with 
the  information  available,  it  would  be  inadvisable  to  formally 
submit  it  to  the  Provost  Marshal  General.  The  rapid  increase 


DRAFT  STATISTICS  413 

in  the  Army  program,  and  the  extreme  emphasis  which  had 
come  to  be  laid  upon  the  organization  and  shipment  of  combat 
troops  during  the  late  spring  and  summer,  had  made  a  rather 
dangerously  unreliable  document  on  the  first  of  June  of  what 
might  have  been  a  fairly  accurate  one  on  the  first  of  May. 
Although  never  formally  presented,  the  figures  were  con- 
sidered sufficiently  accurate  to  be  used  in  a  general  way — in 
determining  in  what  general  types  of  occupations  shortages 
might  be  expected  and  whether  such  shortages  would  be  large 
or  small.  With  these  limitations  in  mind  the  figures  were  used 
to  some  slight  extent  by  men  in  the  Provost  Marshal  General's 
office  and  perhaps  more  extensively  by  the  Committee  on  Edu- 
cation and  Special  Training  in  planning  the  general  layout 
of  its  courses  and  by  the  Central  Distributing  Office  in  its 
work  of  filling  requisitions  equitably  and  efficiently. 

Index  of  Personnel  Demand.  It  was  perhaps  natural  after 
the  difficulty  which  had  been  experienced  in  determining  not 
only  the  future  but  the  current  occupational  needs  of  the  Army 
that  some  system  should  have  been  set  up  to  summarize  that 
information  and  to  make  it  easily  available.  This  system  took 
the  form  of  a  card  index,  one  card  for  each  occupation.  On 
each  card  were  entered  in  appropriate  Staff  Corps  columns 
the  numbers  of  men  of  that  occupation  for  whom  requisitions 
were  received.  When  filed  according  to  symbol  number  these 
cards  afforded  a  summary  of  occupational  demand  that  was 
of  assistance  in  various  ways.  For  instance,  one  of  the  uses  to 
.which  the  index  was  first  put  was  to  assist  in  the  proper  place- 
ment of  very  rare  and  valuable-  specialists,  who,  although  they 
would  undoubtedly  have  been  of  considerable  value  in  any  one 
of  several  units,  were  perhaps  most  urgently  needed  in  only 
two  or  three  highly  specialized  ones.  An  expert  electrical 
instrument  repairman,  symbol  72e,  might  be  reported  from 
Camp  Sherman.  On  first  thought  he  would  appear  to  be  a 
very  handy  man  around  almost  any  Signal  Corps  organization, 
or  again,  he  might  very  well  be  sent  to  an  Air  Service  radio 
school  where  he  could,  with  a  month  or  two  of  training, 


414 HISTORY  OF  PERSONNEL 

develop  into  a  pretty  fair  radio  electrician.  But  a  glance  at 
card  "72"  would  show  that  three  of  these  men  were  required 
in  a  signal  corps  repair  shop  which  was  being  organized  at 
Camp  Vail  to  repair  valuable  electrical  instruments.  This, 
then,  was  the  logical  assignment  for  the  electrical  instrument 
repairman  from  Camp  Sherman,  for  there  he  would  be  con- 
tinuously engaged  on  the  identical  work  in  which  his  civilian 
experience  had  made  him  an  expert. 

But  even  more  important  than  .this  use  of  the  "Index  of  De- 
mand" was  the  service  which  it  began  to  render  early  in  July 
when  there  was  put  into  operation  a  system  of  starring  on  the 
Occupational  Report  form,  CCP-15,  those  occupations  for 
which  there  was  at  the  time  a  strong  demand  from  staff  corps 
organizations.  In  the  developments  and  changes  which  took 
place  in  the  Occupational  Report  form  from  the  time  when 
drafted  men  first  began  to  be  sent  to  depot  brigades  early  in 
1918  until  the  end  of  the  war  one  may  trace  many  of  the 
developments  in  the  policies  of  the  General  Staff  relative  to 
the  distribution  of  the  draft,  and  of  the  methods  employed  by 
the  Distributing  Office  to  interpret  those  policies. 

RELATION  OF  PERSONNEL  STATISTICS  TO  DRAFT 
DISTRIBUTION 

One  of  the  difficulties  continually  encountered  in  the  attempt 
to  place  each  man  correctly  on  an  occupational  basis  arose 
from  the  necessity  of  assigning  large  numbers  of  men  on  an 
almost  entirely  non-occupational  basis  to  combat  organiza- 
tions. During  February  and  March  this  difficulty  had  not 
assumed  the  proportions  of  later  months  because  particular 
attention  was  then  being  paid  to  the  building  up  of  the  Serv- 
ices of  Supply  whose  growth  had  been  somewhat  stunted  by 
the  lack  of  men,  the  only  supply  other  than  volunteers  having 
been  combat  divisions.  So  for  the  first  three  or  four  months 
of  1918  occupational  reports  were  received  covering  all  the 
men  who  were  drafted  and  the  Staff  Corps  received  a  goodly 
percentage  of  men  of  all  kinds.  But  the  German  drive  on 


DRAFT  STATISTICS  415 

the  Western  front  and  the  absolute  necessity  of  sending 
across  fighting  men  as  fast  as  transports  could  carry  them 
put  a  different  face  on  the  situation.  Durifig  May  and 
June  only  the  most  valuable  specialists  could  be  spared  to 
the  Staff  Corps.  Men  of  all  kinds  were  poured  into  com- 
bat divisions  and  replacement  troops  in  a  steady  stream. 
During  that  period  many  lesser  specialists,  who  would  ordin- 
arily have  been  promptly  assigned  to  some  special  unit, 
found  themselves  in  the  ranks  of  the  fighters  where  their 
civilian  skill  was  of  little  value.  But  the  American  Expedi- 
tionary Force  needed  men  who  could  carry  a  rifle  more 
than  it  needed  construction  and  supply  men,  so  that  for 
about  two  months  most  of  the  men  assigned  occupationally 
by  the  Distributing  Office  were  what  were  known  as  'Rare 
Birds.'  For  most  of  the  camps  the  Occupational  Report  form 
consisted  of  a  comparatively  short  list  of  occupations,  in  which 
skill  was  so  valuable  as  to  outweigh  ability  as  potential  fight- 
ing men  even  at  that  critical  time. 

In  July  when  the  comparative  importance  of  line  troops 
was  beginning  to  diminish  somewhat  it  became  evident  that 
it  would  be  the  part  of  wisdom  to  once  more  obtain  occupa- 
tional reports  covering  all  the  men  who  were  drafted  into 
camp.  How  to  do  this  and  yet  provide  for  the  exceptional 
cases  when  the  General  Staff,  without  waiting  for  an  occu- 
pational report,  would  find  it  necessary  to  take  all  but  a  few 
specialists  from  a  camp  for  assignment  to  combat  organiza- 
tions was  the  next  problem.  It  was  solved  by  adopting  the 
system  of  starring  those  occupations  which  the  "Index  of 
Demand"  indicated  were  in  current  demand  by  the  Staff 
Corps,  and  then  instructing  the  camps  whenever  it  did  become 
necessary  to  move  large  numbers  of  drafted  men  without  regard 
to  occupations,  to  omit  starred  men  from  the  shipment.  In 
this  way,  at  camps  from  which  most  of  the  men  had  been 
transferred!  for  combat  duty,  the  valuable  specialists  re- 
mained and  the  Distributing  Office  knew  just  what  kind  of 
specialists  they  were.  At  camps  which  were  not  affected  by 


416  HISTORY  OF  PERSONNEL 

these  large  movements  not  only  were  all  the  men  available 
for  assignment  on  requisitions,  but  the  Distributing  Office 
knew  also  just  what  kind  of  men  these  were. 

A  month's  experience  in  the  use  of  the  starred  Occupational 
Report  appeared  to  justify  a  still  further  refinement.  Orig- 
inally when  an  occupation  was  starred,  the  star  referred  to 
all  the  men  classified  in  that  occupation  regardless  of  whether 
they  were  journeymen  or  apprentices.  It  was  soon  dis- 
covered that  in  certain  occupations  a  larger  number  of  men 
than  was  necessary  were  being  reserved  in  this  way  for  the 
Staff  Corps.  Accordingly  in  the  October  edition  of  the  Occu- 
pational Report  form,  discrimination  was  made  between 
journeymen  and  apprentices  in  starring,  i.e.,  certain  occupa- 
tions were  starred  both  for  journeymen  and  apprentices  and 
others  only  for  journeymen.  This  distinction  was  made  on  the 
basis  of  the  'Index  of  Demand,'  and  the  probable  occupational 
supply  from  the  next  draft  to  meet  that  demand.  Further 
modifications  having  to  do  with  certain  types  of  specialists 
and  with  the  selection  of  expert  industrial  workers  for  fur- 
lough are  described  in  the  next  chapter. 

PROPOSED  FORECAST  OF  ARMY  PROGRAM  ON 
OCCUPATIONAL  BASIS 

Previous  mention  has  been  made  of  a  contemplated  occupa- 
tional forecast  of  the  army  program  from  November  1,  1918, 
to  July  1,  1919,  on  which  the  actual  work  was  just  about  to  be 
started  as  the  armistice  was  signed.  The  necessity  for  such 
a  summary  of  a  definite  army  program,  particularly  for  the 
Staff  Corps,  which  would  be  supplementary  to  General  Per- 
shing's  six-phase  project,  was  being  felt  more  keenly  all  the 
time,  but  all  of  the  four  or  five  men  in  the  office  who  were 
qualified  by  experience  in  personnel  work  and  familiarity  with 
army  organization  to  undertake  such  a  tremendous  task  were 
so  burdened  with  the  more  immediate  work  of  assigning  hun- 
dreds of  thousands  of  recruits  that  it  was  delayed  until  addi- 
tions to  the  office  force  could  be  broken  in.  The  Committee 


DRAFT  STATISTICS  417 

on  Education  and  Special  Training,  as  above  stated,  required 
a  knowledge  of  the  prospective  occupational  shortages  to 
enable  it  to  select  the  right  courses  of  training  for  the  Voca- 
tional Section  of  the  Students'  Army  Training  Corps.  The 
Central  Distributing  Office  had  to  be  able  to  plan  ahead  in  the 
distribution  of  the  draft, — to  know  what  the  Staff  Corps  were 
going  to  require  two  or  three  months  hence  and  to  lay  its 
lines  accordingly.  If  the  Engineer  Corps  intended  to  organize 
several  pontoon  companies  within  a  couple  of  months,  it  would 
be  necessary  to  discontinue  furloughing  boat  builders  to  the 
shipyards  and  mariners  and  boatmen  to  the  merchant  marine 
because  they  would  soon  be  needed  in  the  pontoon  companies. 
Or  if  there  was  to  be  a  great  increase  in  motor  transport,  due 
perhaps  to  the  prospects  of  a  "Spring  Drive"  with  a  resultant 
longer  haul  from  the  base  of  supplies,  special  steps  would 
have  to  be  taken  at  once  to  save  from  Infantry  Replacements 
the  apprentice  as  well  as  the  journeyman  truck  drivers  and 
mechanics  who  otherwise  might  have  found  their  way  to  the 
trenches. 

The  Distributing  Office  had  in  many  respects  been  living 
from  hand  to  mouth — had  been  unable  to  see  more  than  a 
month  or  two  ahead.  After  the  six-phase  project  had  ex- 
pired during  the  summer,  the  Office  had  but  a  very  general 
knowledge  of  what  demands  to  expect  until  the  actual  requisi- 
tions were  received,  usually  with  the  request  that  the  men  be 
supplied  at  once.  This  was  ordinarily  quite  impossible  because 
the  men  were  not  available,  and  the  delay  which  resulted  un- 
doubtedly caused  more  or  less  dissatisfaction.  The  contem- 
plated occupational  summary  by  months,  therefore,  of  the 
units  to  be  organized  in  the  various  Staff  Corps  would  have 
been  of  material  assistance  to  all  concerned.  It  may  not  be 
amiss  to  describe  briefly  the  method  by  which  it  was  proposed 
to  compile  this  summary. 

The  plan  for  securing  and  compiling  this  information  was 
worked  out  by  Mr.  Hale,  assisted  by  Mr.  S.  E.  Wright,  with 
the  collaboration  of  the  Operations  Division.  The  letter  of 


418 HISTORY  OF  PERSONNEL 

instructions  to  the  Chiefs  of  all  Staff  Corps  and  Staff  Depart- 
ments which  had  been  drawn  up  and  virtually  approved  at 
the  time  the  armistice  was  signed,  was  to  be  accompanied  by 
two  sets  of  forms,  which  were  designated  as  Form  A  and 
Form  B.  These  forms  were  to  be  filled  out  and  returned  by 
a  specified  date.  On  each  of  seven  copies  of  Form  A,  one 
for  each  month,  were  to  be  entered  the  numbers  of  each  kind 
of  unit  to  be  organized  during  the  month  in  question,  indicat- 
ing the  number  of  men  required  in  the  unit,  its  table  of  organi- 
zation and  whether  or  not  its  organization  had  been  author- 
ized. This  would  constitute  the  tentative  program  of  the  Staff 
Corps.  These  various  programs  would  have  to  be  approved  in 
general  by  the  Operations  Division  before  they  could  be  used 
as  a  basis  for  computing  the  occupational  needs  of  the  Army. 
On  sheets  called  Form  B  were  to  be  entered  the  occupational 
requirements  of  each  kind  of  organization  appearing  on  Form 
A.  These  occupational  requirements  would  have  to  be  scrutin- 
ized by  the  Central  Distributing  Office  with  a  view  to  eliminat- 
ing over-estimates.  By  applying  a  little  multiplication  and 
addition  to  this  information,  the  office  could  quite  easily  de- 
termine the  occupational  requirements  of  the  Staff  Corps  for 
the  months  in  question.  In  order  to  make  the  estimate  complete 
it  would  have  been  necessary  to  take  into  consideration  the  oc- 
cupational needs  of  the  combat  troops  during  the  seven-month 
period.  The  Operations  Division  could  have  supplied  the  re- 
quired information  concerning  the  number  and  kind  of  combat 
units  to  be  organized,  and  from  the  Tables  of  Occupational 
Needs  could  have  been  derived  the  occupational  requirements 
of  these  units.  A  combination  of  these  two  estimates  would 
then  have  given  a  summary  of  the  future  occupational  needs 
of  the  whole  Army  which  would  have  been  complete  except  for 
special  units  for  which  need  might  arise  from  time  to  time. 

The  next  step  would  then  have  been  to  forecast  the  num- 
bers of  occupational  specialists  to  appear  in  each  of  the 
monthly  draft  calls  and  to  match  this  prospective  supply 
against  the  estimated  requirements.  The  numbers  of  special- 


DRAFT  STATISTICS  419 

• 
ists  found  in  past  drafts  would  have  been  used  as  a  basis 

for  forecasting  the  numbers  to  be  found  in  future  drafts,  al- 
though the  estimates  of  occupational  supply  would  have  been 
revised  monthly  as  the  character  of  the  draft  was  changed  by 
the  induction  of  men  below  twenty-one  and  over  thirty-one. 

The  resulting  summary  would  then  have  enabled  the  Cen- 
tral Distributing  Office  to  work  with  its  eyes  open,  to  intelli- 
gently and  accurately  advise  the  Committee  on  Education  and 
Special  Training  as  to  the  courses  of  study  which  must  be 
initiated  monthly,  to  advise  the  Operations  Division  upon  the 
necessity  of  calling  special  drafts  to  supplement  the  work 
of  the  Army  Schools,  and  to  cut  to  a  minimum  the  requests 
for  those  specialists  among  which  the  shortage  was  most  acute. 


CHAPTER  34 

SPECIAL    TASKS    OF    THE    CENTRAL 
DISTRIBUTING   OFFICE 

At  intervals  throughout  the  life  of  the  Central  Distributing 
Office  various  special  tasks  and  problems  arose  which  had  to 
be  taken  care  of  outside  of  the  regular  routine  of  filling  re- 
quisitions for  men  although  they  all  related  more  or  less 
directly  to  the  occupational  distribution  of  the  draft.  Many 
of  these  special  tasks  became,  after  a  time,  routine  operations 
which  were  not,  however,  carried  on  by  the  main  office  or- 
ganization, but  by  special  agencies  set  up  for  that  purpose. 

SUPPLYING  CHEMISTS  TO  THE  CHEMICAL 
WARFARE  SERVICE 

The  chemist  problem  is  a  case  in  point.  Early  in  May, 
1918.  officers  of  the  Chemical  Service  Section  (later  the  Chem- 
ical Warfare  Service)  asked  the  Central  Distributing  Office 
to  assist  them  in  their  emergency  by  securing  the  names  and 
former  addresses  of  all  the  chemists  who  were  drafted  into 
camp,  and  by  holding  them  in  camp  until  investigations  could 
be  made  and  recommendations  for  their  disposition  submitted. 
It  was  at  that  time  thought  that  the  names  of  practically  all 
the  chemists  would  be  found  in  the  immense  file  of  16,000 
chemist  questionnaires  which  the  Chemical  Service  Section 
had  collected  from  all  parts  of  the  country,  and  that  by  ref- 
erence to  these  questionnaires  it  could  be  determined  whether 
a  man  was  really  a  chemist,  and  if  so,  the  particular  branch 
of  chemical  work  for  which  he  was  fitted.  It  was  very  soon 
discovered,  however,  that  there  were  a  large  number  of  chem- 
ists being  drafted  into  the  army  whose  questionnaires  were 
not  in  this  file,  so  it  was  decided  to  have  all  the  men  claiming 

420 


TASKS  OF  DISTRIBUTING  OFFICE          421 

to  be  chemists  fill  out  questionnaires  in  camp  and  forward 
them  to  Washington.  Accordingly,  on  July  1,  supplies  of 
chemist  questionnaires,  prepared  by  the  Chemical  Service 
Section  with  the  assistance  of  the  Distributing  Office  were 
forwarded  to  all  the  camps  where  drafted  men  were  received 
with  instructions  to  have  each  drafted  chemist  who  came  to 
camp  fill  out  a  questionnaire.  When  received  in  the  Dis- 
tributing Office  they  were  forwarded  to  the  Chemical  War- 
fare Service,  but  a  card  file  was  kept  so  that  it  might  at  all 
times  be  known  just  what  chemists  were  being  held  in  camp. 
The  communications  of  the  Chemical  Warfare  Service  to 
the  Adjutant  General  requesting  the  assignment  of  these  in- 
dividual chemists  passed  through  the  Central  Distributing 
Office  and  notation  of  the  action  taken  was  made  on  the  proper 
cards.  The  questionnaire  system  proved  thoroughly  satisfac- 
tory to  all  concerned. 

In  addition  to  the  chemists  who  came  into  the  Army  through 
the  draft  after  the  installation  of  this  system  there  was  a 
considerable  number  of  chemists  scattered  throughout  the 
Army  who  were  not  engaged  upon  chemical  work.  An  order  of 
May  28,  1918,  directed  that  no  enlisted  graduate  chemist  go 
overseas  unless  he  were  engaged  upon  chemical  duties,  and 
that  the  names  of  all  such  men  already  in  the  service  be  re- 
ported to  Washington.  The  Central  Distributing  Office  under- 
took the  task  of  securing  questionnaires  from  these  men  and 
of  keeping  a  record  of  them  in  practically  the  same  manner 
as  that  described  above.  After  the  establishment  of  the  sys- 
tem of  transferring  individual  chemists  by  name,  this  office 
forwarded  to  the  Chemical  Warfare  Service  the  questionnaires 
(or  names)  of  2916  chemists.  Action  was  taken  on  them  as 
follows : 

Ordered  transferred  for  duty  as  chemists 1990 

Furloughed 26 

Released  for  other  duty  or  rejected  by  C.W.S 471 

No  action  taken  (largely  due  to  armistice) 429 


422  HISTORY  OF  PERSONNEL 

SUPPLYING   RAILROAD  MEN  TO   THE  ENGINEER 

CORPS 

Another  shortage  in  skilled  personnel  which  became  acute 
in  the  early  summer  of  1918  was  the  shortage  in  railway  men 
of  all  kinds.  Not  only  was  there  an  Army  shortage,  but  the 
lack  of  men  on  the  domestic  railways  made  the  situation  quite 
serious,  because  to  have  attempted  to  make  a  special  draft 
of  railway  men  would  have  been  to  place  a  load  upon  the 
railways  of  the  country  which  they  would  have  had  great 
difficulty  in  bearing.  Accordingly,  late  in  June,  a  request 
from  the  Chief  of  Engineers  to  the  effect  that  all  skilled  rail- 
way men  drafted  into  National  Army  camps  be  transferred  to 
the  Engineer  Corps  and  sent  to  Ft.  Benjamin  Harrison  for 
assignment  to  Military  Railway  organizations  was  approved 
by  the  General  Staff  and  put  into  operation.  A  long  and 
somewhat  confusing  list  of  railway  occupations,  not  taken 
from  the  Index  of  Occupations,  was  included  in  the  order. 
The  Central  Distributing  Office  had  previously  made  it  a 
policy  to  send  all  railway  men  not  imperatively  needed  else- 
where to  Ft.  Benjamin  Harrison,  ordering  them  by  specific 
occupations.  The  general  letter  referred  to  made  this  un- 
necessary. It  was  thought  for  some  time  that  this  order  had 
been  sent  to  all  camps  receiving  drafted  men,  and  it  was  not 
until  the  draft  of  July  22nd  had  been  almost  completely  dis- 
tributed that  it  was  discovered  that  there  were  several  National 
Guard  camps  which  had  never  received  the  order  and  were 
continuing  to  hold  their  railway  men  for  orders.  There  re- 
sulted a  revision  of  the  original  order,  addressed  to  all  camps 
and  posts  receiving  drafted  men  and  giving  in  standard  occu- 
pational terms  and  symbols  the  men  who  were  to  be  sent 
to  Ft.  Benjamin  Harrison.  This  revision  was  prepared  by 
the  Central  Distributing  Office  and  thereafter  no  difficulty 
was  experienced  either  by  the  camps  in  knowing  exactly 
which  men  to  send,  or  by  the  Distributing  Office  in  knowing 
exactly  what  men  had  been  sent. 


TASKS  OF  DISTRIBUTING  OFFICE          423 

Along  in  September  the  shortage  of  railway  men  became 
still  more  acute,  so  acute  in  fact,  that  it  was  decided  to  sift 
through  all  the  troops  in  the  United  States  proper  and  trans- 
fer from  their  present  assignments  all  skilled  railway  men  who 
were  not  imperatively  needed  in  their  present  organizations. 
Accordingly,  about  October  1,  a  general  letter  was  sent  by 
the  Distributing  Office  to  all  Department  Commanders  and  to 
Camp  Commanders  not  under  the  jurisdiction  of  Department 
Commanders  to  report  the  name,  grade,  organization,  length 
of  service,  physical  class,  specific  occupation  and  degree  of 
skill  of  each  man  under  their  command  who  qualified  in  one 
of  a  given  list  of  occupations.  These  reports  were  to  be 
mailed  by  October  20,  1918.  The  names  of  approximately  six- 
teen thousand  men,  largely  apprentices,  were  reported  and 
a  portion  of  these  were  tabulated  in  order  to  determine  ap- 
proximately how  many  of  each  classification  might  be  expected 
among  the  whole  number.  Another  summary  was  made  by 
units  and  occupations  without  regard  to  the  other  factors. 
The  signing  of  the  armistice  eliminated  the  necessity  of 
assigning  any  of  these  men  to  the  Engineer  Corps,  but  had  the 
war  continued  a  large  percentage  of  them  would  have  found 
their  way  into  railway  organizations. 

FURLOUGHING  MEN  TO  INDUSTRY 

The  selection  from  the  draft  of  industrial  specialists  for  fur- 
lough to  essential  industry  was  yet  another  task  of  the  Central 
Distributing  Office.  The  system  of  deferred  classification  for 
necessary  industrial  employees  which  was  put  into  operation 
by  the  Provost  Marshal  General  in  connection  with  the  opera- 
tion of  the  draft  succeeded  in  keeping  most  of  the  necessary 
industrial  specialists  from  being  drawn  into  the  Army,  but  the 
size  of  the  machine  and  the  speed  with  which  it  was  forced  to 
operate  made  one  hundred  per  cent,  efficiency  out  of  the  ques- 
tion. In  addition  to  these  draftees  from  necessary  industries 
there  were  a  large  number  of  skilled  men,  who,  because  they 
were  engaged  in  non-essential  industries  were  not  given  defer- 


424  HISTORY  OF  PERSONNEL 

red  classification,  but  who  were  well  qualified  to  do  specialized 
work  in  essential  industry. 

Mr.  Darragh  de  Lancey,  at  that  time  in  the  office  of  the 
Second  Assistant  Secretary  of  War,  but  later  Chief  of  the 
Industrial  Furlough  Section,  requested  the  Distributing  Office 
to  comb  out  such  of  these  specialists  as  were  not  actually  re- 
quired in  their  trades  in  the  Army  and  to  secure  certain  infor- 
mation about  them.  Originally  the  list  of  occupations  in  which 
Mr.  de  Lancey  was  interested  was  limited  to  about  a  dozen  of 
the  most  rare  and  valuable.  For  the  May  25th  draft  this  list 
was  extended  to  thirty  and  a  month  later  to  fifty-five.  Mr. 
de  Lancey's  request  having  been  duly  approved,  these  occupa- 
tions were  included  with  those  occupations  for  which  there 
was  an  army  demand  and  reports  were  secured  from  the  camps 
as  to  the  numbers  of  men  in  these  occupations  who  arrived  in 
a  given  draft.  Then,  after  orders  had  been  drawn  up  for  the 
assignment  to  army  organizations  of  those  men  for  whom  there 
was  an  Army  demand,  further  instructions  were  issued  to 
report  the  names  and  addresses  of  the  former  employers  of 
the  remaining  men  who  qualified  in  occupations  on  Mr.  de 
Lancey's  list.  Duplicate  card  files  containing  this  information 
were  then  prepared.  One  was  forwarded  to  the  Industrial 
Furloughs  Section  and  the  other  to  the  Distributing  Office. 
On  the  basis  of  this  information  that  section,  acting  through 
the  production  departments  of  the  War  and  Navy  Depart- 
ments, communicated  with  the  former  employers  of  the  men 
and  made  other  investigations,  preparatory  to  issuing  fur- 
lough orders. 

It  soon  became  evident  that  a  great  deal  of  time  was  being 
taken  in  obtaining  satisfactory  information  from  the.  former 
employers.  The  Distributing  Office,  therefore,  suggested  that 
some  kind  of  form  letter  be  adopted  which  would  be  sent 
directly  from  the  camp  to  the  former  employer  and,  when 
properly  completed,  forwarded  directly  from  the  employer  to 
the  War  Department.  This  letter,  known  as  Form  CCP-3, 
was  prepared  and  the  system  put  into  operation  for  the  draft 


TASKS  OF  DISTRIBUTING  OFFICE          425 

of  June  25,  1918.  The  letter  of  instructions,  besides  explain- 
ing the  purpose  of  the  form  letter,  provided  that  whenever 
these  letters  were  sent  out,  a  report  should  be  submitted  giving 
the  men's  names  and  occupations  and  the  names  and  addresses 
of  their  employers,  so  that  the  Distributing  Office  might  have 
a  definite  statement  from  the  camp  commander  against  which 
to  check  the  letters  that  came  from  the  employers.  The  sys- 
tem proved  to  be  generally  satisfactory,  particularly  because 
the  Industrial  Furloughs  Section  could  easily  cull  out  those 
men  whose  questionaires  showed  them  to  be  incompetent. 
These  rejects  were  then  assigned  at  once  to  some  Army  organi- 
zation. 

One  source  of  considerable  delay  in  the  selection  of  men  for 
furlough  still  remained.  This  delay  amounted  to  three  or  four 
weeks  for  every  man  and  was  occasioned  by  the  fact  that  after 
receiving  the  complete  occupational  reports  from  the  camps  it 
was  necessary  to  supply  the  Army  needs  before  it  could  be 
determined  which  men  would  be  left  available  for  furlough. 
Although  recognized  from  the  first,  it  had  been  considered  that 
to  attempt  a  solution  of  the  problem  would  only  complicate 
matters.  So  by  the  time  the  Forms  CCP-3  were  really  started 
on  their  way,  most  of  these  skilled  men  who  were  so  badly 
needed  in  industry  had  been  idle  in  camp  for  at  least  three 
weeks.  A  study  of  the  "Index  of  Demand"  which  was  men- 
tioned in  the  preceding  chapter,  showed  that  there  were  several 
occupations  on  the  industrial  furlough  lists  for  which  the 
Army  demand  was  very  small,  and  that,  as  far  as  those  occu- 
pations were  concerned,  there  was  no  logical  reason  for  defer- 
ring the  sending  of  Forms  CCP-3  until  the  Army  need  had 
been  supplied.  If,  then,  a  week  or  two  prior  to  each  draft, 
the  occupational  needs  of  the  Army  to  be  supplied  from  that 
draft  could  be  balanced  against  the  probable  occupational 
supply  from  the  draft,  it  would  be  possible  to  pick  out  a 
considerable  number  of  industrial  occupations  for  which  the 
Army  need  was  immaterial.  The  personnel  adjutants  in  the 
camps  could  then  be  instructed  to  start  the  machinery  of  in- 


426  HISTORY  OF  PERSONNEL 

vestigation  (Form  CCP-3)  as  soon  as  men  of  these  particular 
occupations  arrived  in  the  camps.  Accordingly  the  Occupa- 
tional Report  form,  CCP-15,  was  revised  with  this  end  in 
view,  and  the  occupations  in  which  the  men  were  to  be 
"mortgaged"  for  furlough  were  indicated  by  the  sign  "*3" 
and  were  spoken  of  as  "star-three  men."  It  was  estimated 
that  approximately  one  per  cent,  of  the  draft  would  be  re- 
served under  this  authority. 

The  letter  of  instructions  by  which  this  new  system  was 
instituted  was  sent  out  under  date  of  October  5,  1918,  and  the 
system  was  used  in  the  draft  of  October  21.    In  addition  to  the 
provision  that  Forms  CCP-3  should  be  sent  out  as  soon  as  the. 
men  in  designated  occupations  had  arrived  in  camp  and  been 
interviewed,  the  letter  also  provided  that  duplicate  qualifica- 
tion cards,  Form  CCP-1,  containing  the  trade-test  rating  and 
the  personnel  adjutant's  recommendation  for  or  against  indus- 
trial furlough  should  be  forwarded  to  the  War  Department. 
There  was  really  no  opportunity  to  try  the  system  out  in  actual 
operation  because  the  signing  of  the  armistice  shortly  after- 
wards  put   an   end   to   all    furloughs   and  completely   disor- 
ganized the  work.      It  was   evident,  however,  that  although 
generally   satisfactory,   further   explanation  of  its   procedure 
through  additional  letters  and  particularly  through  the  field 
supervisors  would  have  been  necessary  to  its  efficient  operation. 
It  must  be  clearly  understood  that  the  actual  furloughing  of 
the  men  was  not  done  by  the  Central  Distributing  Office,  but 
by  the  Industrial  Furlough  Section  through  the  Enlisted  Divi- 
sion of  the  Adjutant  General's  Office.    The  Distributing  Office 
merely    recommended    to    the    Operations    Division,    General 
Staff  which  groups  of  men  in  the  occupations  needed  by  indus- 
try could  be  spared  from  the  Army  and  undertook  the  task  of 
reserving  and  securing  detailed  information  about  these  men 
for  the  use  of  the  Industrial  Furlough  Section.    In  addition  it 
was,  of  course,  necessary  to  keep  a  record  of  all  the  men  who 
were  being  reserved  in  order  to  insure  that  some  action  was 
taken  with  respect  to  each  of  them.     Considerable  difficulty 


TASKS  OF  DISTRIBUTING  OFFICE          427 

was  experienced  by  the  Industrial  Furlough  Section  in  obtain- 
ing expeditious  action  on  the  part  of  the  various  production 
departments  and  for  some  time  there  was  a  great  deal  of  delay 
in  actually  accomplishing  the  furloughs,  but  as  the  system  be- 
came more  firmly  established  this  delay  was  gradually  reduced. 

RETENTION  OF  LIMITED  SERVICE  MEN  APPEAR- 
ING IN  GENERAL  SERVICE  DRAFTS 

In  addition  to  the  foregoing  problems  which  had  been,  in  a 
sense,  thrust  upon  the  Distributing  Office  for  solution  and 
application,  there  were  others  which  arose  from  within  the 
organization  itself  but  which  were  not  so  directly  concerned 
with  the  process  of  the  distribution  of  the  draft.  For  instance, 
much  time  and  study  was  given  to  the  question  of  the  wider  f 
utilization  of  limited  service  men.  In  connection  with  this 
subject  there  arose  the  suggestion  that  some  method  of  retain- 
ing limited  service  men  found  in  general  service  draft  calls  be 
established.  A  detailed  investigation  of  the  subject  was  made 
and  a  report  prepared.  A  draft  of  a  proposed  general  order 
on  this  subject  was  worked  out  with  great  care  through  co- 
operation with  the  various  officers  and  individuals  charged 
with  personnel  work  in  the  camps,  those  in  charge  of  the 
operation  of  development  battalions,  representatives  of  the 
Surgeon  General  and  of  the  Provost  Marshal  GeneHal.  The 
report  and  draft  of  order  were  submitted  to  the  Director  of 
Operations  on  or  about  October  3,  1918,  but  the  adoption  of 
the  plan  was  at  that  time  rejected  by  him,  in  view  of  the  fear 
expressed  that  retention  of  limited  service  men  would,  if  en- 
couraged, result  in  a  lack  of  enough  general  service  men  to 
supply  the  then  very  pressing  needs  of  combat  organizations, 
especially  for  infantry  replacements. 


Another  general  problem  which  had  as  its  purpose  the  sav- 
ing of  time  and  transportation  in  getting  the  men  from  their 


428  HISTORY  OF  PERSONNEL 

draft  boards  to  their  final  organizations  was  one  for  which  no 
definite  method  of  solution  had  been  presented  at  the  time  the 
armistice  was  signed.  The  problem  itself  was  somewhat  vague 
and  consisted  largely  in  a  feeling  that  there  ought  to  be  some 
way  to  shortcut  the  paths  of  certain  types  of  specialists  in 
reaching  their  permanent  organizations.  The  "standing  order" 
method  which  was  used  in  connection  with  railway  men  has 
already  been  described.  This  was  the  only  case  in  which  this 
method  was  readily  applicable,  however.  There  was  no  other 
group  or  classification  of  men  which  were  all  required  only  at 
one  camp.  Telegraph,  telephone  and  wireless  men  were  needed 
in  the  largest  numbers  by  the  Signal  Corps  at  Fort  Leaven- 
worth  (later  at  Camp  Meade),  but  they  were  also  needed  in 
divisions  and  combat  units  of  all  kinds.  A  modification  of  the 
"standing  order"  method  might  have  been  adopted  to  fit  the 
type  of  cases  mentioned,  which  would  provide  that  only  a  cer- 
tain percentage  of  the  men  of  certain  occupations  who  were 
found  in  the  draft  would  be  sent  immediately  to  Fort  Leaven- 
worth,  the  balance  to  be  assigned  to  organizations  in  the  camps 
to  which  they  had  been  drafted.  Extensive  statistical  studies 
would  have  been  necessary  before  such  a  system  could  have 
been  put  into  operation  but  it  would  have  added  a  week  or 
two  to  the  training  period  of  several  thousand  men  each  month. 
The  British  had  a  similar  system  of  operation  which  was  sim- 
plified considerably  by  the  comparatively  small  size  of  the 
British  Isles,  and  which  consisted  in  the  circulation  of  monthly 
schedules  which  detailed  the  camps  to  which  men  of  certain 
occupational  and  physical  qualifications  who  entered  the  army 
or  became  available  for  duty  were  to  be  transferred  or 
"posted."  Various  other  plans  were  discussed,  some  of  which 
provided  for  more  or  less  radical  changes  in  the  method  of  get- 
ting men  to  camp  from  their  local  boards,  but  all  of  these 
plans  and  ideas  were  in  such  a  nebulous  state  that  it  is  hardly 
worth  while  to  discuss  them  at  length  here. 


TASKS  OF  DISTRIBUTING  OFFICE          429 

DEMOBILIZATION 

Immediately  following  the  signing  of  the  armistice  there 
arose  the  very  important  question  as  to  the  method  to  be  fol- 
lowed in  demobilization.  The  Central  Distributing  Office  was 
particularly  interested  in  determining  the  practicability  of 
several  forms  of  occupational  or  industrial  demobilization,  and 
cooperated  with  other  sections  of  the  Classification  Division, 
Adjutant  General's  Department,  the  Operations  Division,  Gen- 
eral Staff,  and  the  "Labor  Department  on  this  subject.  It  was 
thought  that  if  it  should  be  decided  to  demobilize  on  the  basis 
of  the  industrial  needs  of  the  country,  the  Central  Distributing 
Office,  with  reversed  machinery,  might  well  be  the  agency  to 
select  the  men  for  discharge.  It  having  been  decided,  however, 
that  demobilization  would  not  be  carried  out  upon  an  industrial 
basis  the  office  force  diminished  swiftly  until  a  personnel  of 
fifty-eight  had  decreased  on  January  1  to  five.  Aside  from 
assistance  rendered  the  Fuel  Administration  in  securing 
authority  for  the  early  demobilization  of  anthracite  coal 
miners,  and  advice  and  assistance  in  a  few  similar  cases,  the 
Distributing  Office  took  no  active  part  in  demobilization.  For 
a  few  weeks,  records  were  kept  of  the  numbers  of  men  dis- 
charged and  estimates  made  of  the  numbers  of  men  affected 
by  discharge  authority,  but  both  of  these  functions  were  soon 
transferred  to  offices  which  were  more  directly  concerned  with 
them. 


SECTION  IX 
SUPERVISION  OF  PERSONNEL  WORK 

Supervision  of  Personnel  Work  was  manifested 
principally  in  three  ways.  There  was  first  direct 
supervision  from  the  Washington  office  through 
traveling  supervisors  (Chapter  35).  Second, 
weekly  letters,  followed  later  by  the  publication  of 
a  weekly  paper,  accomplished  much  toward  stan- 
dardizing and  consolidating  the  work  in  the  many 
camps  and  offices  (Chapter  36) .  And,  third,  a  care- 
ful check  was  established  at  ports  of  embarkation  to 
see  if  units  had  all  their  papers  made  out  correctly, 
particularly  the  qualification  cards  (Chapter  37). 


CHAPTER  35 

SUPERVISION  OF  PERSONNEL  WORK  IN  THE 

CAMPS 

Following  the  installation  of  the  personnel  system  in  the 
National  Army  camps  (described  in  Chapter  6),  and  the  with- 
drawal of  the  trained  employment  men  who  organized  it,  the 
necessity  for  some  method  of  supervision  was  immediately 
recognized  in  order  that  the  work  might  be  standardized,  im- 
proved and  enlarged  and  the  personnel  officers  uniformly 
trained  in  the  constantly  increasing  duties  which  were  assigned 
to  them  in  the  handling  of  all  matters  pertaining  to  the  classifi- 
cation and  placement  of  personnel.  In  addition,  new  camps 
were  being  established  where  it  was  necessary  to  install  the 
personnel  system.  The  work  had  no  sooner  been  completed  in 
the  National  Army  camps  than  the  Central  Office  was  in- 
structed by  War  Department  order  to  install  the  system  in  the 
National  Guard  camps.  Some  time  later,  the  system  was  put 
in  all  the  Coast  Defense  stations  and  many  of  the  Staff  Corps 
camps,  such  as  the  Ordnance  Department,  at  Camp  Hancock, 
the  Quartermaster  Corps,  at  Camp  Joseph  E.  Johnston,  and 
other  places. 

CENTRAL  OFFICE  AND  SUPERVISING 
ORGANIZATION 

The  organization  formed  for  the  purpose  of  supervising'the 
work  in  the  camps  consisted  of  a  civilian  Director  in  the  Cen- 
tral Office,  Mr.  R.  C.  Clothier,  and  later  Mr.  P.  J.  Reilly,  and 
eight  civilian  supervisors  with  three  military  inspectors.  In 
this  conection  the  Director  worked  in  close  co-operation  with 
the  army  officer  detailed  to  the  Committee  on  Classification  of 
Personnel.  In  the  early  days  this  officer  was  Major  (later  Lt. 

433 


434 HISTORY  OF  PERSONNEL 

Col.)  Grenville  Clark.  When  he  was  transferred  to  the  Com- 
mittee on  Education  and  Special  Training,  Lt.  Colonel  (later 
Colonel)  A.  M.  Ferguson  took  his  place.  As  the  number  of 
camps  increased  and  the  work  grew,  an  assistant  to  the  Direc- 
tor, Mr.  J.  F.  Page,  Jr.,  was  appointed  and  four  additional 
civilian  supervisors  were  added  to  the  field  force.  Between 
the  Central  Office  and  the  personnel  officers  in  the  camps,  a 
large  volume  of  direct  correspondence  was  carried  on  regard- 
ing every  phase  of  the  work.  This  was  essential,  since  there 
were  constant  changes  in  procedure  and  additional  duties 
placed  upon  the  shoulders  of  the  personnel  officers  by  War  De- 
partment orders.  This  was  supplemented  very  effectively  by 
letters  known  as  "Daily  Letters,"  dealing  with  special  subjects 
or  matters  of  special  interest  concerning  the  personnel  work. 
Furthermore,  the  officers  in  new  camps  and  divisions  which 
were  constantly  being  organized  required  special  attention  and 
instructions  in  their  duties.  Improvements  in  the  work  were 
constantly  being  made  and  many  of  the  orders  referred  to 
above  were  initiated  by  the  Central  Office. 

The  Central  Office  handled  all  questions  with  reference  to 
camp  office  equipment,  printed  forms,  buildings,  camp  trans- 
portation for  the  personnel  officers,  etc. 

Training  and  Promotion  of  Personnel  Officers.  From  time 
to  time,  as  necessity  required,  schools  were  held  for  the  train- 
ing of  personnel  officers,  arrangements  being  handled  through 
the  office  of  the  director.  Final  selections  of  officers  were  made 
by  the  officer  in  charge  of  the  Committee  and  the  director 
from  the  candidates  at  these  schools  who  were  recommended 
by  the  instructors.  Promotions  and  commissions  given  to  offi- 
cers and  civilians  from  these  schools  were  put  through  upon 
recommendation  of  the  officer  in  charge  to  The  Adjutant 
General  of  the  Army,  and  the  officers  were  assigned 
to  new  posts  or  to  the  camp  or  division  from  which  they  had 
come  to  the  school.  The  officers  and  enlisted  men  who  were 
sent  to  these  schools  for  special  instruction  were  recommended 
by  the  commanding  officer  of  the  camp  or  division  with  the 


SUPERVISION  OF  PERSONNEL  435 

co-operation  of  the  personnel  officer,  and  were  endorsed  by  the 
supervisor  after  a  personal  interview.  The  Central  Office  then 
issued  orders  for  such  men  as  the  commanding  officer  and  di- 
rector finally  decided  should  attend  the  school  to  report  at  the 
proper  time  and  place.  The  complete  record  of  each  man 
attending  the  schools  was  kept  on  file  in  the  office  of  the  direc- 
tor, and  promotions  or  commissions  given  subsequently  to  men 
whose  work  in  the  personnel  offices  entitled  them  to  favorable 
consideration  were  based  also  on  their  work  at  the  school,  as 
noted  on  these  record  cards.  There  were,  of  course,  men  who 
succeeded  in  personnel  work  without  attending  a  school,  and 
their  promotions  were  based  solely  on  their  records  in  the  field. 

Applications  were  continually  being  received  from  civilians 
desirous  of  entering  the  personnel  officers'  school  with  a  view 
to  becoming  supervisors  or  being  commissioned  as  officers  in 
personnel  work.  All  such  applications  were  required  to  be 
made  on  a  standard  blank,  which  was  filed  in  the  Central 
Office,  and  selections  were  made  from  them  of  a  few  of  the 
best  qualified  men  for  training  at  the  schools. 

The  transfers  and  assignments  of  all  personnel  officers  com- 
missioned in  the  Adjutant  General's  Department  were  made 
from  the  Central  Office  by  orders  issued  through  the  officer  in 
charge  of  the  Committee. 

Direct  Correspondence  with  Personnel  Officers.  In  addi- 
tion to  the  files  in  the  Central  Office  containing  school  records 
and  Personnel  Officers'  Qualification  Cards,  there  were  files  of 
correspondence  for  each  camp,  cross-indexed  for  reference  in 
connection  with  special  subjects  or  with  reference  to  the  cor- 
respondence with  individual  officers.  Other  files  contained  cor- 
respondence with  the  supervisors  and  their  reports  on  field 
conditions.  Copies  of  all  general  and  special  orders  were 
available  in  the  Central  Office,  and  the  office  of  the  director 
was  familiar  with  every  action  of  the  War  Department  affect- 
ing the  work  of  personnel  officers  and,  through  familiarity  with 
these  orders,  the  office  of  the  director  was  in  a  position  to  inter- 
pret the  meaning  of  any  point  in  such  orders  which  was  not 


436 


HISTORY  OF  PERSONNEL 


entirely  clear  to  the  men  in  the  camps — and  there  was  a  mul- 
titude of  such  questions  continually  being  asked. 

Direction  of  Personnel  Supervisors.  Through  the  Central 
Office,  orders  to  travel  from  camp  to  camp  were  issued  to  the 
military  inspectors,  while  the  civilian  supervisors  were  fur- 
nished with  letters  of  introduction  and  special  travel  orders. 

PERSONNEL    SUPERVISOR'S    REPORT 

VIS*T|O  11-1-18          su  PERVISOR Mr  . 


Coamuadiag 

o«cer              Brix.  Gen  

Peraotfnel 

Adi»t»«            Cant  

P.  A. 
Ant'i 

P.  A. 

*-«•«               Capt  

let  Lieut  Cua.1.  Cards. 

A™  boii&np      Plenty  of  space  but  permanent  per- 
«*n««tt»           sonaeJ   Njilding  needed 

i  cbuif    b«»  properly  dow> 

Tan 

II  other  equipment 
nSdntr                              TeB 

Are  met.'i  ardl      Wall    done 
ubbed  properly?       raTl  ^.B^ 

end  being 

£S-*i" 

Are  officer!*  rardf 

If" 

An  there  proper  Tea  ,   in  nuibera  but  man  conetant- 

•uber  of  clerk.'  ly.   baing    crwng«rf. 

rUnoSctn 

been  rated? 

EM 

1*  oBcc  lore* 
«•«»"                TBB,    conBld«r<np    «hn»fl  , 

Have  embark    regulation* 
been  eiplabtt<lr 

Tee 

li  rVnonae)  Oficc 


tha    naw    Paraonnnl     OfflfAl-    nflnignorl    fn    trijn    '-•lir._ 


while  I  »as  at.-£. 


and  he  eaaae  to  have  created  a  fenor»bl< 


impression.  Propgr-  hundlnga  for  ParHonnal  WnrV  iinri  ii«rtic.«1  PTain<r..t<r.n«  ..-» 
badly  naadad. — Sufflriant  »an  to  handle  the  work  with  the  incoming  draft  are 
in  Bight  and  gchoola  are  halng  eonfhif.t.nri  ftt.  1«««t  t»«nty  .rMitjnn.?  M»^i"Bl 
Officers  will  be  neaded.  Bmrarnl  nng«.tigf.<-t^T^-  B<fJi.t<nn».f'f«<-><n£  tha  Pat-_ 


eonnel  work  hare  baan  claaratl  up  alnr.o  ay  1««t.  r<«lt. — On  the  nbol«,   there  i» 

__          general  laproTeaent. - 

FIG.    18 
Personnel  Supervisor's  Report 

The  Central  Office  received  reports  from  the  supervisors  on 
the  conditions  at  each  camp,  and  appropriate  action  was  taken 
on  each  report  before  it  was  filed.  The  form  of  report 
inches)  used  for  this  purpose  is  shown  in  Figure  18, 


SUPERVISION  OF  PERSONNEL  437 

and  when  necessary  was  supplemented  with  more  complete  in- 
formation and  suggestions  in  letter  form. 

It  was  always  advisable  that  the  director  be  in  close  touch 
with  conditions  in  the  receiving  camps  while  the  large  drafts 
were  being  received  and  classified.  Consequently,  the  field 
supervisors  were  given  advance  information  as  to  the  camps  at 
which  the  draft  would  be  received  and  were  instructed  to  be 
present  in  those  camps,  particularly  where  it  was  believed 
their  assistance  would  be  needed.  The  following  telegram  is 
a  sample  of  the  information  and  instructions  sent  to  super- 
visors before  the  receipt  of  a  new  draft: 

"Mr 

Care  Commanding  Officer, 

Fort  Caswell,  N.  C. 

Draft  men  will  report  to  camps  in  your  territory  Octo- 
ber twenty-first  as  follows:  5,000  each  to  McClellan, 
Wheeler,  Shelby,  and  Forrest;  12,000  to  Wadsworth  and 

15,000  to  Greenleaf.    Arrange  so  that  either  Mr 

or  you  are  able  to  cover  Wadsworth,  Shelby,  Wheeler, 
Greenleaf,  and  Forrest,  since  this  will  be  more  important 

than  for  Mr to  divide  time  at  Gordon   and 

McClellan     as     indicated    in    telegram    October    ninth. 
Acknowledge  and  advise  new  itinerary. 

,  Director." 

Likewise,  through  advance  information  received  by  the 
Director  regarding  the  establishment  of  new  camps,  he  was 
able  to  advise  the  supervisor  of  the  district,  in  order  that  he  or 
his  assistant  could  be  on  the  ground  long  enough  to  assist  in 
forming  a  personnel  organization.  The  following  letter  to  the 
senior  supervisor  in  the  southern  district  illustrates  the  instruc- 
tions given  in  such  a  case: 

"Mr 

Care  Personnel  Adjutant, 
Camp  Gordon,  Georgia. 

Dear  Mr : 

Notice  was  received  in  the  office  of  the  Director  to-day, 
advising  of  the  establishment  of  a  new  camp  which  will 
be  known  as  Camp  Polk,  at  Raleigh,  North  Carolina. 


438  HISTORY  OF  PERSONNEL 

This  is  a  tank  corps  camp  and  will  be  ready  to  set  up  a 
personnel  organization  on  October  10th. 

Please  either  go  yourself  to  Raleigh  or  send  Mr , 

so  that  this  work  will  be  set  up  under  your  direction  under 
the  standardized  methods  of  procedure.  Write  or  wire 
this  office  when  you  expect  to  be  in  Raleigh,  whereupon  a 
wire  will  be  sent  advising  of  your  visit,  which  will  result 
in  getting  better  cooperation  on  your  first  trip." 

The  Director  himself  made  frequent  short  trips  among  the 
camps,  in  order  to  maintain  that  close  touch  with  field  condi- 
tions which  could  be  obtained  in  no  other  way.  Thus,  by  direct 
correspondence,  reports  of  supervisors  and  personal  visits,  the 
Central  Office  was  kept  very  closely  posted  concerning  the 
functioning  of  personnel  work  in  the  camps. 

FIELD  SUPERVISORS 

The  director  and  the  supervisors  were  men  with  experience 
in  employment  and  personnel  work  in  industry,  the  original 
eight  supervisors  having  been  selected  from  the  group  which 
had  already  had  the  experience  of  installing  personnel  work  in 
the  camps.  The  personnel  supervisors  were  directed  and 
routed  from  the  office  of  the  director,  being  sent  to  those 
camps  from  which  reports  received  at  the  Central  Office  indi- 
cated that  assistance  was  needed  by  the  personnel  officer,  or 
that  the  work  was  not  functioning  entirely  satisfactorily.  In 
the  absence  of  definite  calls  from  the  field,  the  supervisors 
arranged  their  own  itineraries  but  kept  in  daily  touch  with  the 
Central  Office. 

The  supervisor  of  longest  service  in  each  district  was  de- 
signated as  the  "Senior,"  and  his  assistants  as  the  "Junior" 
Supervisors,  the  latter  being  directed  by  the  senior  and  report- 
ing to  him.  The  senior  supervisor,  in  turn,  reported  in  writing 
to  the  director,  giving  an  accurate  account  of  the  conditions 
in  each  of  the  camps  and  the  efficiency  or  shortcomings  of  the 
personnel  officers,  together  with  suggestions  and  recommenda- 
tions to  the  end  that  personnel  work  might  be  made  to  function 
more  perfectly.  In  the  event  of  some  development  requiring 


SUPERVISION  OF  PERSONNEL  439 

detailed  instruction  or  explanation,  the  senior  supervisors 
would  be  called  to  Washington  and  carefully  instructed,  after 
which  they  would  return  to  their  respective  districts,  instruct 
their  assistants  and,  through  them,  the  personnel  officers.  In 
addition  to  the  conferences  of  the  supervisors  in  the  Central 
Office,  the  director  was  usually  accompanied  by  the  senior 
supervisor  of  the  district  when  he  made  his  occasional  trips 
into  the  field. 

In  order  that  each  camp  might  be  visited  frequently  and  the 
supervisors  become  thoroughly  familiar  with  conditions  at  each 
place  and  acquainted  with  commanding  officers,  the  United 
States  was  geographically  divided  into  five  districts,  following 
very  closely  the  military  "Departments"  into  which  the  coun- 
try is  divided  for  purposes  of  Army  administration.  Roughly 
the  divisions  were  as  follows:  District  No.  1,  New  England 
and  Middle  Atlantic  States;  No.  2,  Southern  States  west  to  the 
Mississippi  River;  No.  3,  Middle  States;  No.  4,  Southwestern 
States  from  the  Mississippi  River  west  to  California,  and  Dis- 
trict No  .5,  the  Pacific  Coast  States. 

As  finally  allotted,  there  were  two  personnel  supervisors  in 
District  No.  1,  two  in  District  No.  2,  two  in  District  No.  8, 
four  in  District  No.  4,  where  distances  were  great,  with  many 
camps,  flying  fields  and  isolated  posts  such  as  those  along  the 
border;  District  No.  5,  while  large  in  extent,  contained  but 
very  few  camps  and  one  supervisor  was  found  to  be  able  to 
satisfactorily  inspect  the  work  in  this  territory. 

Duties  of  Personnel  Supervisors.  The  duties  of  the  field 
supervisors  covered  a  wide  range  and  a  multitude  of  details 
requiring  an  intimate  knowledge  of  all  phases  of  the  work  and 
a  high  degree  of  initiative,  self-confidence  and  organizing  abil- 
ity. Being  one  of  the  few  officials  forming  a  liaison  between 
Washington  and  the  field,  the  supervisor  was  asked  questions 
and  requested  to  obtain  action  on  many  matters  not  directly 
touching  on  personnel  work.  By  his  ability  to  accomplish 
often  what  was  requested,  he  obtained  the  respect  and  co- 
operation of  the  commanding  officers,  which  was  so  essential 


440 HISTORY  OF  PERSONNEL 

in  the  accomplishment  of  his  own  work.  In  fact,  it  might  be 
said  that  one  of  the  supervisor's  chief  functions  was  obtaining 
cooperation  from  commanding  officers  and  coordination  be- 
tween the  personnel  officer  and  the  organizations  affected  by 
the  activities  of  the  personnel  work.  Upon  visiting  a  camp, 
the  supervisor  first  called  upon  the  commanding  officer  or  his 
chief  of  staff,  through  the  adjutant.  Matters  pertaining  to 
personnel  work  were  discussed  and  the  supervisor  then  pro- 
ceeded to  the  personnel  office,  going  over  all  details  of  the 
work  with  the  personnel  officer. 

The  supervisors  were  expected  to  assist  the  personnel  offi- 
cers when  assistance  was  asked  and  to  offer  suggestions  where 
room  for  improvement  was  evident.  Moving  from  camp  to 
camp,  many  very  good  suggestions  for  improvement  were  car- 
ried and  passed  on  from  one  to  another  of  the  personnel  offi- 
cers by  the  supervisors.  An  especially  good  suggestion,  upon 
being  reported  to  the  director's  office,  was  often  made  the 
subject  of  one  of  the  "Daily  Letters"  to  all  personnel  officers 
or  was  inserted  as  a  news  item  in  "Personnel,"  the  weekly 
news  publication  of  the  Committee.  Supervisors  were  largely 
responsible  for  standardization  of  procedure  in  all  the  per- 
sonnel offices,  together  with  proper  organization  and  equipment 
of  the  offices.  It  was  also  essential  that  personnel  officers, 
interviewers  and  classifiers  should  receive  uniform  instruction, 
in  order  to  accomplish  uniform  results.  During  the  receiving 
of  drafts,  the  supervisors  inspected  the  work  of  the  inter- 
viewers, to  see  that  they  understood  correct  methods  of  han- 
dling the  recruit  and  the  right  kinds  of  questions  to  ask  in 
interviewing,  in  order  to  exhaust  the  possibilities  of  skill  in 
occupations  useful  to  the  Army.  Particular  attention  was 
called  to  the  placement  of  those  men  holding  certificates  from 
the  Federal  Board  of  Vocational  Education  and  those  men  who 
had  graduated  from  Army  Training  Schools. 

In  the  case  of  personnel  work  in  divisions,  it  was  the  special 
duty  of  the  supervisors  to  determine  whether  the  placement 
and  distribution  of  personnel  was  being  done  in  such  a  manner 


SUPERVISION  OF  PERSONNEL  441 

as  to  utilize  fully  the  available  man  power  and  to  balance 
properly  the  different  units  and  one  unit  in  relation  to  other 
units,  with  reference  to  the  intelligence  and  skill  of  the  men 
assigned  to  them.  Permanent  camp  organizations,  such  as  the 
personnel  office,  Depot  Quartermaster,  Ordnance  Depot,  Base 
Hospital,  etc.,  furnished  a  large  field  for  the  utilization  of 
limited  service  men  in  place  of  physically  fit  Class  A  men,  who 
were  needed  in  the  overseas  forces.  Supervisors  made  sure 
that  the  personnel  officers  were  giving  this  matter  of  utilizing 
limited  service  men  their  closest  attention. 

During  the  visit  in  a  camp,  the  supervisors  examined  the 
qualification  cards  of  officers  and  enlisted  men  and  all  records 
pertaining  to  personnel  work.  Regulations  were  carefully  ex- 
plained regarding  preparation  of  records  for  units  going  to 
ports  of  embarkation  and  from  station  to  station,  and  the  great 
importance  of  having  every  man  accompanied  by  his  proper 
records  was  pointed  out  and  obedience  to  regulations  insisted 
upon.  In  order  that  the  Allotment  and  Supply  Sections  of  the 
Central  Office  might  have  the  necessary  reports  of  men  avail- 
able for  assignment  and  transfer,  it  was  necessary  for  the  per- 
sonnel officers  to  prepare  all  reports  called  for  promptly  and 
accurately.  Insistence  upon  this  was  a  duty  of  the  supervisor. 

Since  trade  tests  were  a  function  of  the  personnel  office,  it 
was  necessary  to  have  the  closest  co-ordination  in  the  work 
and  the  supervisors  were  expected  to  see  that  the  work  was 
operating  smoothly. 

A  very  important  function  of  the  personnel  supervisors  was 
the  selection  of  officers  and  enlisted  men  for  instruction  in  the 
personnel  officers'  schools  or  for  promotion.  In  selecting  the 
men  to  be  recommended,  the  supervisors  were  of  course  in- 
fluenced largely  by  the  statements  of  the  personnel  officers  but, 
in  addition,  the  supervisor  endeavored  to  interview  personally 
each  prospective  candidate.  As  a  result  of  the  interview  and 
the  statements  of  superior  officers,  the  supervisor  endorsed  the 
names  of  those  men  selected  for  schooling  by  the  personnel 
officer,  whom  he  considered  qualified  for  such  special  training. 


442  HISTORY  OF  PERSONNEL 

Trade  Test  Supervisors.  Upon  the  preparation  of  trade 
tests  for  the  Army,  an  organization  was  formed  for  the  instal- 
lation and  supervision  of  the  work  in  those  camps  selected  to 
have  trade  test  stations.  The  Director  of  Trade  Tests,  Mr. 
L.  B.  Hopkins,  was  responsible  for  supervising  and  directing 
the  preparation  of  trade  tests,  installing  the  tests  in  the  camps, 
coordinating  the  work  as  one  of  the  functions  of  the  personnel 
office,  and  finally  for  the  procurement  and  training  of  sufficient 
officers  and  men  to  conduct  the  tests  and  supervise  the  work  in 
the  camps.  Trade  testing  was  a  function  of  personnel  work, 
therefore  the  Director  of  Trade  Tests  worked  in  close  co- 
operation and  constantly  consulted  with  the  Director  of  Per- 
sonnel Work.  The  trade  test  supervisors,  working  under  the 
director,  were  all  men  equipped  for  this  work  by  industrial 
training  and  specialized  instruction.  There  were  five  in  all: 
three  civilians  and  two  commissioned  officers,  the  latter 
selected  from  camps  where  they  had  already  been  in  personnel 
work  and  had  shown  special  fitness  for  the  trade  test  work. 
Through  the  commissioned  officers,  the  director  was  enabled  to 
maintain  the  necessary  military  liaison  with  the  officers  and 
men  in  the  trade  test  offices  in  the  field.  The  duties  of  the 
trade  test  supervisors  were: 

1.  To  make  all  detailed  arrangements    for    space    and 
equipment  for  trade  test  stations  wherever  it  was  decided  to 
install  the  work. 

2.  To  form  a  competent  organization  at  each  station  to 
conduct  the  tests,  maintain  the  necessary  records  and  pre- 
pare reports  for  the  director. 

3.  To  coordinate  the  work  of  the  trade  test  and  per- 
sonnel offices,  since  trade  tests  were  a  function  of  the  latter 
and  under  the  general  supervision  of  the  camp  personnel 
officer. 

4.  To  follow  closely  the  work  of  the  trade  test  officers 
and  enlisted    men    and    make    recommendations,    for    those 
qualified,  for  further  training  at  trade  test  schools  or  for 
commissions  or  promotions. 

Military  Inspectors.  Three  military  inspectors  were  main- 
tained under  the  direction  of  the  Commanding  Officer  of  the 


SUPERVISION  OF  PERSONNEL  443 

Committee,  who  worked  in  close  cooperation  with  the  civilian 
Director  of  Personnel  Work  in  the  camps.  The  purpose  in 
having  these  commissioned  officers  as  inspectors  was  to  main- 
tain a  close  military  liaison  between  the  Central  Office  and  the 
field,  and  to  enable  the  office  to  have  carried  out  certain  orders 
and  regulations  of  a  purely  military  nature.  Also,  it  was  the 
thought  that  certain  corrections  in  the  procedure  in  the  camps 
and  recommendations  dealing  with  promotion  of  officers  could 
be  better  carried  out  through  these  officers.  One  of  these  in- 
spectors concerned  himself  almost  entirely  with  the  question  of 
proper  preparation  of  records  of  men  or  organizations  going 
to  ports  of  embarkation  for  service  overseas.  Regulations 
were  drawn  up  by  him  describing  exactly  how  every  form 
should  be  arranged  and  these  regulations  were  usually  ex- 
plained by  him  in  person,  or  by  one  of  the  supervisors-,  before 
any  division  was  ordered  to  the  port  of  embarkation,  so  as  to 
make  sure  that  the  orders  were  complied  with  that  every  officer 
and  soldier  must  have  a  qualification  card  to  accompany  him 
overseas.  (See  Chapter  37  for  further  details.)  The  military 
inspectors  were  not  restricted  to  any  given  district,  but 
traveled  over  the  whole  country  under  the  direction  of  the 
Central  Office. 


CHAPTER  36 

"PERSONNEL" 

NEED  OF  KEEPING  IN  TOUCH  WITH  THE  FIELD 

The  Personnel  System  of  the  Army  was  at  no  time  static. 
It  was  continually  growing  and  developing.  Week  by  week 
additions  were  made  to  the  scope  of  the  work  and  to  the 
responsibilities  carried  by  the  personnel  adjutants.  With  more 
than  a  hundred  minds  continually  focused  on  personnel  prob- 
lems it  was  inevitable,  also,  that  improvements  in  methods 
should  be  frequent. 

All  this  was  in  the  highest  degree  desirable.  Scientific  per- 
sonnel work  in  the  Army  was  so  recent  it  would  have  been  a 
distinct  misfortune  to  allow  it  to  be  bound  by  precedent  or  to 
crystallize  it  into  a  hard-and-fast  procedure.  One  of  the  great 
advantages  enjoyed  by  the  Committee  during  the  first  year  of 
its  existence  was  its  freedom  from  the  fetters  of  red  tape  and 
its  ability  to  put  into  operation  new  plans  as  fast  as  these  plans 
were  developed  and  found  practicable. 

All  during  1917  and  during  the  early  part  of  1918  this  rapid 
development  brought  with  it  no  serious  dangers.  The  organ- 
ization was  still  small  enough  to  enable  the  central  office  at 
Washington  to  keep  in  fairly  close  touch  with  the  officers  in 
the  field.  It  is  true  that  occasionally  some  difficulties  were 
experienced  through  the  lack  of  standardization  which  enabled 
various  camps  handling  the  same  kind  of  work  to  use  entirely 
different  methods.  On  the  other  hand  this  gave  a  practical  try- 
out  for  several  methods  as  a  basis  for  selecting  the  best  among 
them.  Most  commonly  the  excellent  features  of  several  dif- 
ferent methods  were  combined. 

Toward  the  close  of  the  first  year  of  the  Committee's  work 

444 


'PERSONNEL"  445 


it  became  important  to  provide  a  plan  that  would  insure  a  con- 
siderable degree  of  uniformity  in  operations.  By  the  summer 
of  1918  the  size  of  the  organization  had  reached  a  point  where 
over  four  hundred  officers  and  five  thousand  enlisted  men  were 
engaged  in  personnel  work.  The  task  of  keeping  in  touch  with 
all  these  and  standardizing  their  methods  was  by  no  means 
easy  and  was  much  more  necessary  than  before. 

EARLY  METHODS  OF  SUPERVISION 

Personnel  Supervisors.  There  were  still  supervisors  making 
personal  visits  to  the  camps  but  there  were  only  five  of  them 
to  cover  the  whole  United  States.  Their  visits  were  conse- 
quently infrequent  and  were  confined  almost  entirely  to  the 
larger  camps,  leaving  the  smaller  posts  arid  receiving  stations 
with  very  little  guidance  or  advice  beyond  that  which  the  per- 
sonnel adjutants  had  received  at  the  personnel  school. 

The  Personnel  Manual.  Next  to  the  supervisors  the  most 
important  source  of  assistance  that  the  camp  personnel  offices 
had  was  the  Personnel  Manual.  This  was  begun  in  the  Spring 
of  1918  and  was  issued  chapter  by  chapter  in  loose-leaf  form 
Its  purpose  was  to  furnish  standard  instructions  for  carrying 
on  the  various  departments  of  personnel  work,  and  as  these 
instructions  were  based  upon  methods  that  had  been  tested  out 
and  proved  practicable  and  effective,  they  were  naturally  of 
much  value  in  increasing  the  efficiency  of  all  the  offices.  Vol- 
ume II  of  this  work  is  an  expansion  of  that  Manual.  Chapters 
I,  III,  IV  and  V  were  issued  by  April,  1918.  They  were 
the  most  important  of  all.  No  others  were  published  up 
to  September,  1918.  Moreover,  these  chapters  became 
obsolete  very  quickly,  as  the  development  of  the  personnel 
system  led  to  improvements  in  organization  and  in  forms. 
Notwithstanding  this,  the  Personnel  Manual  had  an  important 
share  in  the  task  of  rounding  the  camp  personnel  procedure 
into  a  real  system. 

"Daily  Letters."     Important  changes  in  methods  were  of 


446  HISTORY  OF  PERSONNEL 

course  made  known  by  official  communications,  either  as  gen- 
eral orders  or  as  circulars.  These,  however,  comprised  only  a 
very  small  proportion  of  the  items  on  which  personnel  adju- 
tants needed  instruction  or  assistance.  It  often  happened, 
moreover,  that  even  such  information  as  was  contained  in  gen- 
eral orders  failed  to  arrive  in  the  hands  of  the  personnel  adju- 
tant until  after  the  time  when  it  would  have  been  most  useful 
to  him.  In  some  instances  mail  went  astray  and  the  official 
communication  was  never  received  by  him  at  all. 

All  these  conditions  made  it  imperative  that  some  means  be 
found  for  keeping  in  direct  and  immediate  touch  with  all  per- 
sonnel adjutants  at  frequent  intervals.  A  system  of  daily  let- 
ters was  first  used  for  this  purpose.  Later  the  letters  were 
sent  weekly.  Each  of  these  letters  contained  an  item  of  infor- 
mation, a  bit  of  instruction,  or  a  helpful  suggestion  regarding 
methods  and  means.  The  character  of  these  communications 
can  be  seen  from  this  typical  example: 

May  14,  1918. 

STATISTICIANS  NEEDED,  FOR  LIMITED  SERVICE 

"1.  There  are  at  present  in  the  United  States  some  20,000  sol- 
diers not  physically  qualified  for  service  overseas.  Among  this 
number  there  are  a  certain  proportion  of  those  who  are  highly 
qualified  to  be  of  special  service  to  the  Army  in  some  capacity  or 
other.  Personnel  Officers  have  a  great  opportunity  to  seek  these 
men  out  and  get  them  into  those  positions  where  they  can  be  of 
most  use. 

"2.  Many  Personnel  Officers  have  already  been  active  in  this  di- 
rection. This  office  would  appreciate  information  with  reference  to 
striking  instances  where  men  of  unusual  talent  who  were  about  to 
be  discharged  from  the  Army  on  account  of  some  physical  defects 
have  nevertheless  been  saved  and  used  in  important  army  work  in 
which  their  physical  defect  is  really  no  handicap. 

"3.  In  this  connection  you  will  be  interested  to  know  of  one 
requisition  for  skilled  men  which  Personnel  Officers  will  soon  be 
called  upon  to  fill.  The  General  Staff  is  in  need  of  high-grade 
statisticians  and  accountants — men  who  are  preferably  engineering 
graduates  or  university  graduates  with  some  statistical  or  engineer- 
ing experience.  These  must  be  men  of  high  intelligence  and  superior 
general  ability.  They  are  needed  for  important  service  in  the  office 


"PERSONNEL"  447 


of  the  statistical  division  of  the  General  Staff  here  in  Washington. 
Only  men  who  are  physically  disqualified  for  full  military  duty  will 
be  accepted  for  these  appointments. 

COMMITTEE  ON  CLASSIFICATION  OF 
PERSONNEL  ix  THE  ARMY." 

These  weekly  letters  helped  materially  to  solve  the  problem 
of  keeping  in  touch  with  the  field  but  they  had  serious  limita- 
tions. In  the  first  place,  the  amount  of  space  available  in  each 
communication  was  so  small  that  only  a  single  point  could 
usually  be  dealt  with  and  this  very  briefly,  when  oftentimes 
the  subject  demanded  extensive  presentation.  In  the  second 
place,  it  was  not  found  feasible  to  distribute  these  letters  to 
all  those  who  needed  the  instruction.  In  the  third  place,  the 
letters  had  limitations  as  to  typography  and  possibilities  of 
display  which  made  it  impossible  to  secure  a  degree  of  em- 
phasis that  indicated  the  relative  importance  of  various  points 
or  to  illustrate  them  properly. 

"PERSONNEL" 

By  midsummer  several  members  and  associates  of  the  Com- 
mittee who  had  been  giving  thought  to  this  problem  had  come 
to  the  conclusion  that  the  only  satisfactory  solution  was  the 
establishment  of  a  weekly  magazine  or  house  organ.  Such  a 
publication,  it  was  felt,  would  provide  a  means  for  keeping  all 
the  personnel  adjutants  and  their  staffs  of  enlisted  men  con- 
stantly and  completely  informed  regarding  all  the  approved 
up-to-date  methods.  At  the  same  time  it  was  felt  that  this 
publication  would  give  the  men  an  added  interest  in  personnel 
work  and  would  tend  to  show  them  the  relation  which  their 
own  part  in  it  bore  to  the  general  scheme.  This  larger  view- 
point could  not  help  but  relieve  somewhat  the  monotony  which 
their  own  routine  tasks  might  have,  in  common  with  other 
clerical  work.  All  this,  of  course,  would  develop  esprit  de 
corps  and  a  higher  degree  of  efficiency. 

The  First  Issue.  The  plan  was  approved  by  The  Adjutant 
General  of  the  Army  and  on  August  21,  1918,  the  first  issue 


448  HISTORY  OF  PERSONNEL 

of  "Personnel"  was  published.  Practically  the  whole  of  it  was 
taken  up  by  a  speech  which  the  Secretary  of  War  had  de- 
livered at  the  Eighth  School  for  Personnel  Adjutants  at  Camp 
Meigs,  Washington,  D.  C.  In  this  speech  the  Secretary  had 
stated  emphatically  his  approval  of  personnel  work  in  the 
Army  and  had  given  so  illuminating  a  view  of  its  possibilities 
that  it  was  felt  especially  fitting  to  bring  it  to  the  attention  of 
every  officer  and  soldier  engaged  in  personnel  work  in  this 
country.1 

Major  General  P.  C.  Harris,  The  Adjutant  General  of  the 
Army,  contributed  a  signed  editorial  to  this  issue  in  which  he 
presented  the  purposes  of  "Personnel"  as  follows : 

"The  new  journal,  PEHSONNEL,  is  to  continue  and  expand  the  re- 
lationship which  the  Adjutant  General's  Office  has  sustained  with 
those  officers  of  the  Army  who  are  striving  to  place  each  soldier 
where  he  is  most  needed. 

"On  April  27th  I  addressed  the  students  of  the  School  for  Per- 
sonnel Adjutsfcts.  I  have  taken  pains  to  visit  the  personnel  offices 
in  the  camps,  and  have  attempted  to  keep  in  close  cooperation  with 
the  personnel  adjutants  in  the  field.  To  make  this  possible  this 
office  has  acted  primarily  through  the  Committee  on  Classification 
of  Personnel.  Thus  schools,  conferences,  visits  of  supervisors,  the 
services  of  experts,  trade  specifications,  occupational  needs  of  a 
combat  division,  aids  to  interviewers,  qualification  cards,  the  rating 
scale  and  numerous  other  aids  have  been  provided.  It  is  desirable 
that  this  office  should  reach  the  personnel  adjutants  oftener  than 
is  possible  by  schools,  conferences  and  visits  of  supervisors.  It  is 
also  desirable  that  the  aids  should  be  provided  more  frequently 
than  is  possible  in  such  formal  publications  as  those  mentioned 
above.  In  many  instances,  supplementary  instruction  is  necessary. 
To  meet  those  varied  needs,  65  "Daily  Letters"  have  been  sent 
to  the  Personnel  Adjutants  in  the  Divisional  Camps.  This  office  now 
desires  to  reach  a  larger  group  of  Personnel  Adjutants  and  to  reach 
them  more  adequately  than  has  been  possible  by  the  daily  letter. 
This  new  journal  is  intended  to  supplant  the  daily  letters  and  to 
supplement  such  other  agencies  as  Schools,  Conferences,  Visits  of 
Supervisors  and  all  other  publications  issued  by  this  office.  PER- 
SONNEL will  contain  information  on  such  topics  as  General  Classifi- 
cation Work,  Trade  Testing,  Personnel  Needs  of  the  Army,  Assign- 

1  Secretary  of  War  Baker's  speech  is  reprinted  in  the  appendix  of  this  volume. 


'PERSONNEL"  449 


ing  Men,  Transfers,  Rating  of  Officers,  Officers'  Qualification  Cards, 
and  important  contributions  to  the  field  of  Personnel  such  as  the 
address  of  the  Secretary  of  War,  contained  in  the  present  issue. 
Personnel  Adjutants  are  authorized  and  encouraged  to  write  directly 
to  PERSONNEL,  Room  528,  State,  War  and  Navy  Building,  ask- 
ing assistance  in  any  difficulties"  in  the  classification  work  of  the 
office  of  the  Personnel  Adjutant." 

As  the  members  of  the  Committee  on  Classification  of  Per- 
sonnel were  all  seriously  over-burdened  with  other  duties  it 
was  found  expedient  to  add  to  the  organization  Mr.  G.  B. 
Hotchkiss,  an  experienced  editor,  to  take  charge  of  the  new 
publication  and  of  other  work  in  connection  with  the  publica- 
tions of  the  committee.  "Personnel/'  however,  was  not  a  one- 
man  proposition.  Every  member  of  the  committee  contributed 
articles  from  time  to  time,  so  that  it  was  in  a  largest  sense  a 
Committee  organ. 

Later  Development  of  "Personnel"  The  slogan  of  "Per- 
sonnel" was  "The  Right  Man  in  the  Right  Place."  Practically 
every  issue  had  a  leading  article  which  showed  how  the  doc- 
trine of  "The  Right  Man  in  the  Right  Place"  had  been  applied 
in  some  phase  of  army  activities.  The  following  is  a  list  of 
the  most  important  leading  articles: 

Number     1     "The  Secretary  of  War  Speaks  on  Personnel 

Work  in  the  Army." 

Number     2     "The  Army  System  of  Classification"  (a  sum- 
mary of  the  organization  of  the  Committee 
on  Classification  of  Personnel). 
Number     3     "The  Development  Battalions." 
Number     4     "Personnel  Work  Overseas"   (an  explanation 
of  the  way  the  Personnel  System  works  out 
in  the  A.  E.  F.) 
Number     5     "Personnel  Work  in  Students'  Army  Training 

Corps." 

Number  6  "A  Study  of  Officers'  Ratings." 
Number  7  "The  Making  of  a  Trade  Test." 
Number  8  "Conservation  of  Man-Power  in  the  British 

Army." 

Number     9     "The  Procurement  of  Officers  for  the  Army." 
Number  10     "The  Recruiting  and  Classifying  of  Commis- 
sioned Officers." 


450  HISTORY  OF  PERSONNEL 

Number  11     "The  New  Soldier's  Qualification  Card." 
Number  12     "The   Importance  of  Intelligence   Ratings  in 
the  Assignment  of  Recruits." 

In  addition  to  these  leading  articles  each  issue  contained  an 
editorial,  usually  of  inspirational  character,  and  a  large  num- 
ber of  items  of  news  and  suggestions  regarding  methods  of 
proved  effectiveness  which  might  be  applied  in  the  various 
camps. 

Editorial  Policy  and  Style.  Articles  were  invariably  un- 
signed. The  Committee  as  a  whole  took  the  responsibility  for 
their  accuracy.  Throughout  the  publication,  in  fact,  a  very 
strict  policy  of  anonymity  was  observed,  with  the  exception  of 
quotations,  which  were,  of  course,  credited  to  their  authors.  At 
first  the  tone  of  "Personnel"  was  serious  and  dignified.  As  it 
progressed,  however,  a  gradual  tendency  was  observable  to 
introduce  into  it  a  lighter  tone,  and  to  give  more  items  regard- 
ing methods  used  in  individual  camps. 

Had  the  publication  continued  longer  it  would  presumably 
have  become  more  and  more  a  clearing  house  of  suggestions 
from  the  camps,  as  well  as  official  instruction  and  advice  to  the 
camps.  The  publication,  however,  was  shortlived.  After  the 
twelfth  issue,  and  just  about  the  time  the  armistice  was  signed, 
it  was  ordered  discontinued.  The  very  advantages  it  possessed 
of  direct  and  immediate  communication  with  officers  and  men 
in  the  Personnel  offices,  became  disadvantages  when  the  Com- 
mittee on  Classification  of  Personnel  was  absorbed  into  the 
military  organization  as  a  Section  of  the  General  Staff.  Its 
usefulness,  moreover,  was  greatly  diminished  when  the  draft 
increments  ceased  to  pour  into  the  camps,  and  the  work  of 
mobilizing  the  United  States  Army  was  ended. 

Results  of  "Personnel."  Even  during  its  short  life,  "Per- 
sonnel" had  established  itself  as  a  valuable  part  of  the  work  of 
the  personnel  organization.  It  succeeded  in  its  essential  pur- 
pose of  giving  to  personnel  adjutants  and  their  staffs  the  infor- 
mation and  assistance  they  needed  in  carrying  on  their  work 
efficiently.  It  was  also  notably  effective  in  developing  morale 


"PERSONNEL"  451 


and  esprit  de  corps  within  the  various  camp  personnel  organ- 
izations, as  well  as  in  the  home  office.  Enlisted  men,  as  well 
as  officers,  read  it  eagerly  and  kept  it  on  file  with  other  CCP 
forms  for  permanent  reference  and  use. 

While  it  was  primarily  an  internal  house  organ,  copies  were 
sent  to  commanding  officers  of  camps  and  chiefs  of  staff  corps 
and  departments  and  others  in  the  military  establishment  who 
were  especially  interested  in  personnel  work.  Thus  it  served 
as  a  means  of  revealing  the  functions  and  methods  of  personnel 
work  and  the  importance  of  this  work  in  the  general  scheme  of 
operations  for  winning  the  war.  In  a  few  camps  the  interest 
was  so  great  that  the  camp  commander  and  the  camp  adjutant 
asked  that  the  publication  be  distributed  among  the  officers 
throughout  the  camp. 

Some  copies  came  into  the  hands  of  individuals  outside  the 
military  organization  and  requests  for  it  multiplied  rapidly. 
Employment  managers  especially  asked  to  be  put  upon  the 
mailing  list.  The  employment  management  section  of  the  War 
Industries  Board,  among  others,  requested  a  large  number  of 
copies  to  be  distributed  among  those  in  training  for  employ- 
ment managers.  It  was  rapidly  on  the  way  to  becoming  recog- 
nized as  the  authoritative  publication  in  the  field  of  personnel 
work. 

The  original  edition  of  the  first  issue  of  "Personnel"  was 
7,000  copies.  This  number  proved  far  too  small  to  satisfy  the 
demands  of  camps  and  other  military  organizations.  In  sub- 
sequent issues  the  edition  was  increased  to  9,000  and  later  to 
10,000.  A  reprint  of  Volume  I,  No.  1,  became  necessary  to 
supply  the  demands  for  copies  of  Secretary  Baker's  speech. 
Some  of  the  later  issues  had,  also,  to  be  reprinted,  notably 
Number  6,  containing  a  Study  of  Officers'  Ratings,  which  was 
demanded  for  distribution  to  all  officers  having  to  make  ratings 
in  the  camps  in  October,  1918.  Long  after  the  discontinuance 
of  "Personnel"  requests  continued  to  come  in  from  officers  and 
civilians  for  back  issues,  many  of  which  could  not  be  furnished 
because  the  stock  had  become  completely  exhausted. 


452  HISTORY  OF  PERSONNEL 

The  cost  of  10,000  copies  of  "Personnel"  was  approximately 
$250.00,  inclusive  of  overhead  and  salary  charges.  This  meant 
about  2^/2  cents  a  copy.  No  advertising,  of  course,  was  car- 
ried and  no  subscription  price  was  charged.  This  apparently 
high  cost,  however,  should  be  considered  in  relation  to  the  cost 
of  carrying  on  personnel  work  in  the  camps.  Considering  the 
pay  of  the  enlisted  private  alone  as  $30.00  a  month,  exclusive 
of  maintenance,  the  cost  of  one  copy  of  "Personnel"  for  a 
month  was  only  about  one-third  of  1  per  cent,  of  this  amount. 
When  speed  in  mobilization  and  efficiency  of  placement  were  so 
essential,  the  relative  cost  of  the  instruction  and  stimulation 
which  "Personnel"  gave  toward  the  accomplishment  of  these 
ends  was  small  indeed. 

How  well  "Personnel"  accomplished  its  purpose  may  be 
seen  from  the  following  brief  extracts  taken  from  a  large  num- 
ber of  letters  from  camp  personnel  adjutants: 

Camp  Meade,  Maryland: 

"PERSONNEL  acquaints  all  persons  who  are  not 
familiar  with  the  work  with  the  important  part  that  it  plays 
in  the  War.  It  shows  them  it  is  one  of  the  most  essential 
things  toward  the  desired  end — winning  the  War.  The  en- 
listed men  in  the  Personnel  Department  occupy  the  position 
of  clerks,  and  day  in  and  day  out  perform  the  same  duties, 
one  man  writing  the  qualification  card,  another  the  service 
record,  another  an  insurance  blank,  etc.  These  minor 
duties  by  themselves  appear  very  insignificant  and  of  no 
great  value  or  importance,  and  if  their  value  and  importance 
is  not  brought  to  the  attention  of  the  men  at  various  times, 
they  soon  become  careless.  PERSONNEL  continually 
reminds  the  men  of  the  value  and  importance  of  each  detail 
of  their  part  in  the  work,  stimulates  their  interest  and 
creates  a  greater  desire  on  their  part  to  be  accurate 
in  their  work.  Further,  it  acquaints  them  with  the  work 
done  in  other  sections,  and  comes  down  to  the  basic  roots 
of  how  it  is  started  and  gives  them  a  better  understanding 
of  what  the  work  of  each  Section  means  to  the  next.  In 
this  respect  it  is  of  especial  value  to  the  Assignment 
Section." 


"PERSONNEL"  453 


Camp  Lewis,  Washington: 

"First,  it  inspires  enthusiasm  in  both  Commissioned  and 
Enlisted  personnel.  The  unofficial,  friendly  tone  of  the 
paper  gets  close  to  all  concerned  and  induces  a  spirit  of 
cooperation  in  all. 

"Secondly,  it  is  a  very  convenient  way  of  educating  per- 
sonnel workers  and  keeps  them  advised  of  changes  in  meth- 
ods, etc. 

"Thirdly,  its  distribution  through  Headquarters  and  the 
command  in  general  helps  to  educate  the  entire  command 
in  the  theory  of  personnel  work." 

Camp  Devens,  Massachusetts: 

"PERSONNEL  takes  up  the  various  phases  of  personnel 
work  in  a  way  that  is  instructive  without  being  tedious. 
It  keeps  the  men  in  closer  touch  with  personnel  work,  and 
shows  to  them  the  importance  of  the  work  that  they  are 
engaged  in.  In  short  it  contains  just  the  information  they 
want  to  know,  and  in  the  way  they  want  it  told,  and  I  can 
say  that  among  my  men,  it  has  created  a  greater  interest 
in  following  up  the  personnel  work." 

Camp  Dix,  New  Jersey: 

"When  PERSONNEL  is  received  in  this  office,  such 
parts  as  directly  affect  any  particular  department  are 
marked  for  special  attention,  as  for  instance  in  Personnel 
No.  9,  article  named  "Physical  Classes  for  Use  of  Develop- 
ment Battalions"  was  brought  to  the  attention  of  the  Assign- 
ment Section  in  order  to  enable  them,  when  filling  requisi- 
tions, to  take  careful  note  of  a  man's  physical  status.  In 
Personnel  No.  11,  the  articles  "Changes  in  Tabbing"  and 
"The  Value  of  Intelligence  Ratings"  were  marked  for  the 
attention  of  the  Rating,  Tabbing  and  Assignment  Sections 
respectively,  particular  stress  being  placed  on  the  latter  in 
order  that  proper  observation  of  the  intelligence  rating 
would  insure  proper  allocation  of  the  soldier." 

From  these  and  similar  expressions  it  is  evident  that  PER- 
SONNEL was  of  great  help  in  the  supervision  of  personnel 
work  in  the  field  through  its  part  in  educating  the  forces 
and  in  developing  cooperation  among  all  those  interested  in 
putting  "The  Right  Man  in  the  Right  Place." 


CHAPTER  37 
WORK  AT  THE  PORTS 

Despite  varied  checks  many  officers  and  enlisted  men  were 
reaching  France  in  the  first  few  months  of  the  war  without 
all  of  their  papers.  This  was  particularly  true  in  the  case  of 
the  qualification  card,  one  reason  for  this  being  that  this  rec- 
ord was  kept  at  camp  or  division  headquarters  and  not  in  the 
company  file.  In  consequence,  when  the  man  moved,  his  card 
might  not  be  pulled  from  the  file  and  transferred  to  the  officer 
in  charge. 

On  March  15,  1918,  General  Pershing  cabled  to  The  Adju- 
tant General  as  follows:  .  .  .  "Officers  and  soldiers  in 
organizations  and  casuals  arriving  in  France  without  voca- 
tional classification  cards.  In  order  to  maintain  classification 
system  here  in  base  and  replacement  divisions  request  that 
all  casuals  and  organizations  bring  these  cards  with  them." 

The  Committee  immediately  took  active  steps  to  ensure  that 
all  officers  and  enlisted  men  should  be  accompanied  by  their 
qualification  cards.  As  a  result  personnel  adjutants  were 
assigned  to  Ports  of  Embarkation  to  see  to  it  that  all  records 
were  present,  including  the  qualification  cards.  Captain 
(later  Major)  J.  Perry  Moore  at  Hoboken  and  Captain  Merle 
Crowell  at  Newport  News  were  placed  in  charge.  Some  time 
afterwards  Major  (later  Lieutenant  Colonel)  Royal  Mattice 
was  placed  in  general  charge  and  acted  as  inspector  for  the 
Committee,  making  sure  that  personnel  adjutants  in  the  camps 
were  acquainted  with  the  work  required  at  Ports  of  Embarka- 
tion and  carried  these  instructions  out. 

The  Adjutant  General  of  the  Army  issued  instructions,  in 
letter  of  May  11,  1918,  that  "Every  officer  must  be  covered  by 
an  Officer's  Qualification  Card  and  for  each  enlisted  man 

454 


WORK  AT  THE  PORTS  455 

leaving  for  foreign  Service,  the  following  records  must  be 
fully  and  accurately  prepared  (Par.  No.  6):  (1)  Service  Rec- 
ord, (2)  Individual  Equipment  Record,  (3)  Pay  Card,  (4) 
Information  for  Allotment  of  Pay  and  Application  for  Family 
Allowance,  (5)  Application  for  Insurance,  (6)  Personnel 
Qualification  Card,  (7)  3  x  5  Locator  Cards,  and  (8)  5  x  8 
Record  Card  (A.G.O.,  S.D.  A.  E.  F.,  Form  No.  6)  (white)  ; 
also  the  following  if  any  existed:  (9)  Application  for  Class 
E  Allotment,  Q.M.C.  Form  No.  38,  (10)  Score  Card,  (11) 
Court  Martial  Record,  and  (12)  Delinquency  Record." 

The  Commanding  Generals  at  Headquarters,  both  Ports  of 
Embarkation,  issued  orders  that  no  officer  or  enlisted  man 
would  be  allowed  to  embark  without  his  qualification  card. 
This  was  the  inception  of  the  check  system  employed  at  Ports 
of  Embarkation,  to  see  that  every  officer  and  enlisted  man  was 
covered  with  a  complete  set  of  records. 

THE  MAGNITUDE  OF  A  PORT  OF  EMBARKATION 

In  order  to  give  a  mental  picture  of  the  magnitude  of  a 
Port  of  Embarkation,  it  might  be  well  to  state  that  while 
Hoboken,  Port  of  Embarkation  Headquarters,  was  frequently 
referred  to  as  "Port  of  Embarkation"  and  was,  in  fact, 
embarkations  took  place  at  Halifax,  Nova  Scotia;  Que- 
bec and  Montreal,  Canada;  Boston,  New  York,  Hoboken, 
Philadelphia,  and  Baltimore,  and  were  fed  by  pre-embarka- 
tion  camps  at  Camp  Merritt,  Tenafly,  N.  J.,  Camp  Mills  and 
Camp  Upton,  Long  Island,  N.  Y.,  Camp  Dix,  N.  J.,  Camp 
Meade,  Md.,  Camp  Devens,  Mass.,  Camp  Crane,  Pa.,  and 
Aviation  Camp  at  Mineola,  Long  Island,  N.  Y.  Briefly, 
embarkation  took  place  from  Halifax  to  Charleston  and 
included  every  port  between,  in  order  to  facilitate  the  speedy 
movement  of  troops  overseas. 

Under  the  command  of  the  Commanding  General,  Port  of 
Embarkation,  Hoboken,  N.  J.,  the  total  personnel  was  29,979. 
Of  this  number,  2,250  were  commissioned  officers;  20,616 


456  HISTORY  OF  PERSONNEL 

enlisted  personnel;  487,  field  clerks;  and  6,626,  civilian  clerks. 
This  included  Camp  Mills,  Camp  Merritt  and  all  sub  posts 
under  the  jurisdiction  of  these  Headquarters. 

Newport  News  comprised  the  Headquarters  of  the  Port 
of  Embarkation  of  Newport  News,  Camp  Stuart,  Camp  Hill, 
Camp  Morrison,  and  Camp  Lee,  Va.,  1,685  commissioned 
officers,  16,670  enlisted  men,  91  field  clerks,  and  900  civilian 
clerks,  making  a  total  of  19,346,  including  all  operating 
forces  under  the  authority  of  the  Port  of  Embarkation,  New- 
port News,  Va. 


The  keynote  of  personnel  work  at  a  port  of  embarkation 
was  struck  by  the  slogan:  "No  records  shall  go  aboard  ship 
without  the  man  whom  they  concern  .  .  .  No  man  shall  go 
aboard  ship  without  a  complete  set  of  records." 

The  fulfillment  of  this  slogan  was  an  absolute  necessity. 
The  port  of  embarkation  was  the  last  point  of  contact  in  this 
country  for  troops  embarking  for  active  service  overseas.  All 
paper-work  tangles  involving  enlisted  personnel  were  sup- 
posed to  be  straightened  out  before  troops  left  for  the  port. 
They  had  to  be  straightened  out  before  troops  embarked. 

Back  of  all  other  considerations  lay  the  primary  fact  that 
anything  short  of  this  worked  a  great  injustice  to  the  soldier 
himself.  Deficient  or  faulty  records  might  mean  such  compli- 
cations as  postponement  of  pay,  suspended  transmittal  of 
allotments  and  allowances  to  dependents,  improper  placement 
of  individuals:  all  of  which  tended  to  lessen  the  contentment 
and  injure  the  morale  of  the  men.  Failure  to  guard  against 
such  deficiency  was  failure  to  cooperate  fully  with  our  fight- 
ing forces  overseas. 

Incomplete  records  also  very  frequently  entailed  long  range 
correspondence  between  the  American  Expeditionary  Forces 
and  camps  in  this  country.  Most  certainly  they  added  bur- 


WORK  AT  THE  PORTS  457 

dens  to  hard  worked  officers  and  clerks  in  the  fighting  units 
and  the  Services  of  Supply. 

The  Statistical  Department.  The  first  step  was  to  con- 
solidate the  Insurance  and  Allotment  Department,  the  Card 
Index  of  Personnel  Department,  and  the  Statistical  Depart- 
ment. The  latter's  function  was  the  preparation  of  passenger 
lists  showing  the  name,  Army  serial  number,  rank,  grade, 
name  of  nearest  relative,  relationship,  and  the  address  of  the 
nearest  relative. 

The  Insurance  Department  was  primarily  intended  to  take 
care  of  the  officers  and  men  at  the  ports,  but  frequently  troops 
passing  through  would  ask  to  be  insured  or  to  have  their  in- 
surance increased  when,  for  various  reasons,  they  refused  to 
take  insurance  when  offered  it  while  in  training  camps.  Get- 
ting closer  to  the  submarine  zone  of  activities  quickened  the 
soldier's  appreciation  of  the  protection  offered  by  his  Govern- 
ment. All  the  persuasion  previously  exerted  by  those  in  the 
Insurance  Department  was  of  no  avail,  but  if  good  for  noth- 
ing else,  the  submarine  was  the  best  "self-starting  insurance 
solicitor"  yet  discovered.  About  $175,000,000  additional  in- 
surance was  written  at  Hoboken  and  $33,000,000  at  New- 
port News. 

The  Card  Index  of  Personnel  Department.  The  Card 
Index  of  Personnel,  alphabetically  arranged,  showed  the  name 
of  each  officer  and  enlisted  man,  the  name  of  the  ship  on 
which  he  sailed,  the  date  of  sailing,  and  the  port  from  which 
he  sailed,  so  that  information  could  be  quickly  given  to  those 
interested  if  they  inquired  if  a  certain  officer  or  man  had  gone 
abroad.  If  the  name  of  the  man's  nearest  relative,  or  any 
other  information  pertaining  to  him,  was  desired,  the  pas- 
senger list  of  the  steamship  appearing  on  the  man's  card 
would  be  consulted  and  all  the  data  desired  would  be  readily 
obtainable. 

Previous  to  the  installation  of  the  Card  Index  of  Personnel, 
the  names  on  the  passenger  list  were  alphabetically  arranged 
and  the  officers  and  men  were  loaded  according  to  this 


458 HISTORY  OF  PERSONNEL 

arrangement  on  the  passenger  list.  This  plan  was  very  incon- 
venient. For  instance,  Adams  would  be  a  big,  tall  man  and 
would  be  in  the  first  squad,  Adamson  would  be  a  man  of 
medium  height  and  would  be  in  the  centre  squad,  while 
Adston  might  be  a  very  short  man  and  in  the  last  squad  of 
a  company  of  two  hundred  and  fifty.  Therefore,  when  their 
names  were  called,  the  tall  man  from  the  first  squad  would 
troop  across  the  gang-plank  and  be  checked,  Adamson  would 
come  from  the  middle  squad  of  a  company  of  two  hundred 
and  fifty,  with  heavy  field  equipment  and  would  crowd  and 
struggle  to  get  past  his  companions  and  inadvertently  lose 
some  part  of  his  equipment,  which  necessitated  time  to  recover 
and  adjust;  Adston  would  come  from  the  last  squad  in  the 
company  and  also  scramble  past  his  comrades  to  reach  the 
checker's  desk,  with  his  equipment  disordered  in  the  same 
way.  Loading  in  this  manner  required  forty-five  minutes  for 
a  company  of  two  hundred  and  fifty  men. 

It  was  clearly  evident  that  some  other  method  must  be 
adopted  that  would  allow  loading  to  proceed  with  less  fric- 
tion and  greater  speed.  Therefore,  the  method  of  listing  men 
on  the  passenger  list  according  to  alphabetical  arrangement 
was  discontinued  and  each  company  and  detachment  was  listed 
on  the  passenger  lists  according  to  the  usual  formation  of  the 
company,  i.  e.,  by  squads.  This  reduced  the  loading  per  com- 
pany of  two  hundred  and  fifty  from  forty-five  minutes  to  an 
average  of  eight  and  one-third  minutes  per  company.  This 
plan  worked  so  well  that  instead  of  loading  over  but  one 
gang-plank,  four  gang-planks  were  employed  and  a  battalion 
was  loaded  simultaneously,  so  that  in  eight  and  one-third 
minutes  one  thousand  men  were  loaded,  whereas  formerly  but 
two  hundred  and  fifty  were  loaded  in  the  same  time.  Some  of 
the  larger  boats  were  loaded  and  the  "turn  around"  accomp- 
lished so  quickly  that  the  enemy  referred  to  our  troop  trans- 
ports as  the  "United  States  ferry  boats." 

Inspection  of  Paper  Work  at  Camps  Prior  to  Arrival  at 
Ports.  Another  vexatious  problem  presented  itself — how  to 


WORK  AT  THE  PORTS  459 

cut  down  delays  and  eliminate  everything  that  tended  to 
delay  accurate  counting,  checking  and  supervising  at  pre- 
embarkation  camps.  Unfortunately,  only  a  few  officers  had 
had  previous  military  experience,  and  most  of  them  had  to  be 
guided  and  directed  regarding  the  handling  of  men  and 
records.  This  of  necessity  was  slow  work,  as  it  required  indi- 
vidual attention  and  in  order  to  speed  up  the  work  a  more 
comprehensive  scheme  had  to  be  devised.  Therefore,  it  was 
recommended  to  The  Adjutant  General  of  the  Army  that  a 
qualified  officer  be  given  the  "Priority  Schedule"  (a  list 
showing  in  sequence  the  divisions  about  to  move  overseas), 
and  that  a  representative  of  The  Adjutant  General's  Office 
be  detailed  to  visit  such  divisions  and  request  the  Command- 
ing General  to  assemble  all  Commanding  Officers,  Personnel 
Adjutants,  First  Sergeants,  and  Company  Clerks — approxi- 
mately 1,600  to  1,700  to  a  division — and  outline  to  them 
minutely  and  carefully  the  records  required,  the  method  of 
tlieir  preparation,  and  the  arrangement  and  manner  of  carry- 
ing them  to  the  pre-embarkation  camp  or  Port  of  Embarka- 
tion, so  that  all  records  pertaining  to  each  and  every  officer 
and  enlisted  man  would  be  complete  and  instantly  available  at 
all  times,  if  last-minute  changes  occurred  on  account  of  sick- 
ness, disease  or  death. 

This  recommendation  was  adopted  and  put  into  effect,  and 
the  result  was  very  beneficial.  Each  company  and  detach- 
ment commander  was  held  responsible  for  the  records  of  his 
organization  <md  all  were  told  that  a  check  would  be  made  at 
the  pre-embarkation  camp,  as  well  as  at  the  gang-plank;  that 
names  must  appear  on  the  passenger  list  arranged  according 
to  company  formation,  i.  e.,  by  squads ;  that  all  records  per- 
taining to  each  and  every  enlisted  man  must  be  clipped  to- 
gether and  arranged  in  sequence  in  a  box,  as  per  the  names 
on  the  passenger  list. 

Instructions  Issued  to  Organization  Commanders  at  Ports. 
The  following  is  the  instruction  sheet  and  illustration  issued 


460  HISTORY  OF  PERSONNEL 

to  organization  commanders  in  the  camps  and  again  immedi- 
ately upon  their  arrival  at  pre-embarkation  camps: — 

"  1.  Upon  arrival  at  pre-embarkation  camp,  an  officer  from  each 
company  or  detachment  will  report,  accompanied  by  company  clerk, 
at  Camp  Personnel  Office,  Headquarters,  with  Passenger  Lists  and 
Locator  8x5-inch  Cards,  Service  Records,  Pay  Records,  Individual 
Equipment  Records,  Information  for  Allotment  of  Pay  and  Appli- 
cation for  Family  Allowance,  Application  for  Insurance,  Personnel 
White  Tabbed  Qualification  Cards,  and  Record  5  x  8-inch  Cards 
(A.  G.  O.,  S.  D.,  A.  E.  F.,  Form  No.  6  White) ;  also  the  following, 
if  any  exists:  Score  Card,  Delinquency  Record,  Court-martial  Rec- 
ord, and  application  for  Class  E  Allotment  (Q.  M.  C.,  Form  No.  38), 
all  arranged  in  accordance  with  the  Passenger  List  for  his  com- 
pany or  detachment,  to  be  checked  by  the  Personnel  Office.  In 
the  event  that  a  company  or  detachment  commander  does  not  have 
a  white  Qualification  Card  for  each  enlisted  man,  or  two  Locator 
3  x  5-inch  Cards  and  Record  5  x  8-inch  Card  (A.  G.  O.,  S.  D.,  A. 
E.  F.,  Form  No.  6)  for  each  officer,  enlisted  man,  nurse  and  civilian 
within  his  company  or  detachment,  he  will  immediately  notify  by 
telephone  the  Camp  Personnel  Adjutant  before  reporting  to  that 
office,  when  arrangements  will  be  made  for  the  classification  of  those 
in  the  company  or  unit  unclassified. 

"2.  The  complete  set  of  records  mentioned  in  paragraph  1,  for 
each  man,  will  be  fastened  together  without  folding  the  cards. 

THE  RECORDS  FOR  THE  MEN  IN  EACH  COMPANY  OR  DETACHMENT  WILL 
BE  ARRANGED  IN  EXACT  AGREEMENT  WITH  THE  PASSENGER  LlSTS  BEFORE 
REPORTING  AT  THE  CAMP  PERSONNEL  OFFICE. 

"3.  PASSENGER  LISTS  WILL  BE  ARRANGED  IN  FIVE  PACKETS,  with  the 
originals  forming  one  packet.  Each  of  these  packets  will  consist  of 
a  complete  list  of  the  officers  and  enlisted  men  in  the  company  or 
detachment,  and  will  be  arranged  from  top  to  bottom  as  follows: 
1.  Officers  (first  class) ;  2.  Enlisted  men  above  grade  17  (second 
class);  3.  Enlisted  men  below  grade  16  (third  class).  ALL  CASUAL 
DETACHMENTS  WILL  HAVE  Six  PACKETS  OF  PASSENGER  LISTS. 

"4.  Passenger  lists  will  be  approved  and  stamped  by  the  Camp 
Personnel  Office  when  each  list  is  checked  against  the  records  and 
found  to  be  correct.  The  Personnel  stamp  in  the  upper  left-hand 
margin  of  the  second  packet  of  Passenger  Lists  only,  signifies  that 
corrections  must  be  made  and  the  lists  returned  to  the  Camp  Person- 
nel Office  for  re-inspection.  The  Personnel  Adjutant's  stamp  in  the 
upper  left-hand  margin  of  the  second  packet  of  Passenger  Lists 


WORK  AT  THE  PORTS 


461 


Fio.  19 
Illustration  Showing  How  Records  Should  Be  Assembled. 

The  drawing  is  faulty  as  It  makes  the  Individual  Equipment  Record 
appear  to  be  placed  BEHIND  the  Qualification  Card,  whereas  It  should  be 
placed  in  front  of  the  Pay  Card. 


462  HISTORY  OF  PERSONNEL 

and  also  in  the  upper  right-hand  margin  of  the  same  packet  signifies 
that  the  lists  and  records  are  approved  by  the  Personnel  Office. 

"5.  A  Personnel  Adjutant  at  the  Port  of  Embarkation  will  inspect 
Passenger  Lists,  and  records  will  be  kept  "ever  ready",  in  order  that 
they  may  be  withdrawn  when  names  are  stricken  from  Passenger 
Lists,  or  when  additions  are  made,  so  that  records  can  be  inserted, 
covering  men  lost  or  added  between  pre-embarkation  camp  and  Port 
of  Embarkation.  No  man  will  board  the  vessel  without  a  complete 
set  of  records,  nor  will  records  be  received  aboard  the  vessel  without 
the  man.  In  case  of  nurses  and  civilians  with  a  unit,  two  Locator 
3  x  5-inch  Cards  and  a  Record  5  x  8-inch  Card  (A.G.O.,  S.D.,  A.E.F., 
Form  No.  6  White)  is  all  that  is  required." 

Procedure  at  the  Gang-Plank.  When  a  campany  arrived  at 
the  gang-plank,  the  cheeking  officer  would  call,  "Smith"  and 
the  man  would  answer,  "John  W.,"  thereby  identifying  him- 
self with  the  checker.  The  Commanding  Officer  would  stand 
at  the  side  of  the  checker  and  after  each  man  identified  him- 
self and  was  identified  by  the  Commanding  Officer,  this  officer 
would  signify  it  by  saying,  "Check"  and  would  have  the  man 
step  over  the  gang-plank.  In  this  way,  three  checks  were 
made  on  every  man,  which  prevented  any  German  sympathizer 
from  getting  on  board  -with  a  bomb  or  other  dangerous 
explosive  to  wreck  the  ship.  With  such  a  system  devised,  it 
was  impossible  for  any  man  to  get  on  board  who  was  not 
properly  vouched  for. 

Inspection  Report  Regarding  Records,  Figure  20  is 
a  copy  of  the  report  used  by  all  camps  and  sub-ports  of  the 
Port  of  Embarkation,  Hoboken,  N.  J.  This  report  was  first 
prepared  by  the  personnel  adjutant  inspecting  the  records  of 
the  unit  concerned  and  completed  after  the  organization  had 
full  instructions  relative  to  pre-embarkation  matters  and  had 
sufficient  time  to  clear  up  any  deficiencies  or  irregularities. 
When  verified,  and  after  such  reports  had  gone  through  the 
usual  routine,  serving  all  purposes  intended  both  to  the  Or- 
ganization Commanders  and  Headquarters,  Port  of  Embarka- 
tion, they  were  sent  to  the  War  Department  and  forwarded 
by  the  Central  Personnel  Office  to  the  Camp  Commander,  by 
indorsement,  for  corrective  and  record  purposes. 


WORK  AT  THE  PORTS 


463 


PORT  OF  EMBARKATION,  HOBOKEN,  N.  J. 
HEADQUARTERS  CAMP 


Field  and  Office  Inspection  Report  of   Records  and   Passen- 
ger Lists. 

191 

Organization   Number  of  Officers  Numbers  of  Enlisted 

Former  Station Present Men  Present 

RECORD  REPORT 


•   Q 

*- 

O       • 

co 

h 

CO 

eo 

'£  8 

B      CO 

cS   'U 

g  q 

s  ^ 

i—  ( 

OH       . 

a  ^ 

CH    , 

3 

II 

36 

£  < 

£^ 

O 

O  ® 
0  ~ 

c 
H 

Missing  

Incomplete   .... 

Completed  Here 

Estimated  or 
Percent  of  Qualification  Cards  properly  tabbed.  .     . 


Records 
Prescribed  Box 


) 


|  were  not  5 

5  was  not  { 

General  condition  of  records 
Remarks    .  


arranged  according  to  instructions. 
used  to  carry  records. 


Checked  bv. . 


FIG.  20 
Inspection  Report 


464 


HISTORY  OF  PERSONNEL 


PASSENGER  LIST  REPORT 


Errors 


8  S 

1    o 


^      V 

•<   CO 


c8 

.2 

c 

08 

kb 


'O 
T3 

<    t 


properly      accom- 

,„     ,  f  were         7  plished  and  arranged 

Twelve  copies  of  Passenger  Lists  <  >F 

(  were  not  j  according  to   instruc- 
tions. 

f  were  not )  legible.     Number  written  by  this  office 

All  copies     '  J 

I  were         j 

General  condition  of  Passenger  Lists 

Remarks 

Checked  by 

(The  above  Report  will  be  baaed  on  initial  inspection  and  not  upon  the 
final,   except  where   necessary   to   state  work   done   by  your  office) 

GENERAL  REPORT 

Records  and  Passenger  Lists  were  inspected  and  approved  by 

the of  Camp , 

,  as  indicated  by  stamp  on  Passenger  List. 

( was          ) 

)was  notC   thoroughly  informed 

Name   of   Organization   Personnel         *• 

Adjutant 

regarding  the  preparation,  arrangements,  etc.,  of  Records  and  Pas- 
senger Lists  for  organizations  moving  overseas  and  attributed  his 
lack  of  information  to 

LOCAL    OFFICE    INFORMATION 

Date  of  arrival  at  Embarkation  Camp Remarks 

Location  of  Organization  in  Camp 

Instructions  received 

Final  inspection  set  for 

Records  first  received 

Returned  for  correction 

Final  inspection  and  approval 

Inspection  approved: 

Embarkation   Personnel   Adjutant  Camp   Personnel   Adjutant 

Further    remarks    to    be    noted    on    reverse    side 

FIG.  20a. 
Inspection  Report  (Continued) 


WORK  AT  THE  PORTS  465 

Handling  of  Casuals.  One  very  perplexing  problem  was 
the  disposition  of  Casuals  (officers,  nurses  or  enlisted  men 
not  a  component  part  of  a  designated  organization).  Fre- 
quently, officers,  nurses  or  enlisted  men  would  become  ill  at  a 
Port  of  Embarkation  and  could  not  proceed.  They  would  im- 
mediately lose  identity  with  their  previous  organization  and 
would  be  treated  as  "Casuals",  or  "Unattached",  and  when 
their  health  was  recovered  and  they  were  in  fit  condition  to 
travel,  they  would  be  sent  abroad  as  Casuals. 

Every  Casual  had  to  have  an  individual  set  of  records,  a 
passport  and  two  copies  of  his  or  her  photograph,  as  a  means 
of  identification  in  the  A.  E.  F.  An  organization  was  per- 
fected for  this  particular  service,  and  each  individual,  after 
presenting  the  travel  order  issued  by  the  War  Department, 
was  compelled  to  produce  his  Qualification  Card  or  immedi- 
ately make  one  out.  In  this  way,  a  check  at  all  Ports  of 
Embarkation  on  all  personnel,  whether  in  organizations  or 
not,  was  secured. 


SECTION  X. 
SPECIAL  PROBLEMS 

In  this  section  are  presented  four  special  prob- 
lems that  in  many  senses  may  be  thought  of  as  out- 
side the  field  of  personnel  work  with  the  regular 
run  of  enlisted  men  and  officers.  There  was  first 
of  all  the  selection  and  training  of  personnel  officers 
for  the  personnel  organization  itself  ( Chapter  38. ) 
Second,  there  was  the  handling  of  civilians,  includ- 
ing those  who  wished  to  work  for  a  dollar  a  year, 
those  who  patriotically  desired  to  serve  their  coun- 
try, but  felt  that  they  had  to  earn  a  living  at  the 
same  time,  and  those  who  were  seeking  their  own 
advancement  whether  qualified  for  Government 
service  or  not.  Chapter  39  relates  the  organization 
developed  to  handle  all  such  and  the  further  activi- 
ties which  grew  out  of  the  general  situation.  Third, 
there  was  the  problem  of  utilizing  men  not  fit  for 
full  combat  service  (Chapter  40.)  And  finally, 
there  was  the  utilization  of  educational  institutions 
whereby  certain  men  could  be  trained  as  tradesmen 
for  Army  uses  and  certain  others  as  officers  ( Chap- 
ter 41.) 


CHAPTER  38 

TRAINING    SCHOOLS    FOR    PERSONNEL 
OFFICERS 

NEED  FOR  TRAINING  PERSONNEL  OFFICERS 

Personnel  officers  for  the  first  divisions  to  be  formed  in  this 
country  were  appointed  by  the  various  Commanding  Officers. 
On  the  whole,  these  selections  were  very  good,  but  some  of 
the  officers  were  not  fitted  for  the  work  and  had  to  be  re- 
placed and  a  large  number  were  not  of  sufficient  calibre  to 
administer  a  personnel  office  after  the  consolidation  of  insur- 
ance, statistical  and  personnel  work. 

As  personnel  work  grew  more  and  more  complex,  it  became 
more  and  more  evident  that  the  personnel  officer  of  a  divi- 
sion or  camp  and  particularly  the  latter,  must  be  an  excep- 
tional man.  And  at  the  same  time  it  became  equally  clear 
that  such  superior  men  were  not  going  to  be  obtained .  by 
calling  upon  Commanding  Officers  to  nominate  them.  There 
were  two  good  reasons  for  this.  Comparatively  speaking, 
there  are  few  men  in  any  camp  of  the  qualifications  needed 
to  do  all  that  a  personnel  officer  was  called  upon  to  handle. 
And,  second,  practically  all  such  officers  were  needed,  in  the 
estimation  of  the  Commanding  Officer,  for  other  work. 

'Originally,  one  officer  was  appointed  as  personnel  officer, 
two  as  insurance  officers,  and  three  as  statistical  officers. 
Three  of  the  six  were  authorized  for  personnel  work  on  Jan- 
uary 11,  1918.  The  remaining  three  furnished  on  paper  a 
supply  for  additional  personnel  officers.  But  actually  most 
of  the  statistical  officers  were  unfitted  for  the  work  having 
originally  been  selected  for  intelligence  work  and  on  the 
basis  of  ability  to  speak  French  and  German.  About  the  time 

'469 


470  HISTORY  OF  PERSONNEL 

that  this  became  thoroughly  realized,  there  developed  a  large 
number  of  new  positions  to  which  personnel  officers  had  to  be 
assigned.  Almost  over  night,  then,  the  situation  with  respect 
to  a  supply  of  new  personnel  officers  changed  from  one  of  a 
supposed  considerable  supply  to  a  decided  shortage. 

On  April  17,  1918,  authority  was  granted  for  the  commis- 
sioning in  the  Adjutant  General's  Department  of  22  captains, 
32  first  lieutenants  and  15  second  lieutenants.  They  were  to 
be  assigned  as  camp  personnel  officers  in  16  depot  brigade 
camps,  11  U.  S.  recruit  depots  and  6  department  headquar- 
ters. It  was  recognized  at  this  time  that  future  authoriza- 
tions would  have  to  be  made  in  order  to  carry  on  personnel 
work  in  this  country  at  the  various  ports  of  embarkation, 
in  divisions  shortly  to  be  organized,  and  in  France. 

It  was  imperative  in  consequence  at  that  time  to  secure 
officers  and  to  train  them  in  personnel  work. 

The  following  pages  record  some  of  the  important  steps  in 
meeting  this  situation.  As  an  actual  fact,  the  demand  always 
did  keep  ahead  of  the  supply  so  that  months  later  when  the 
A.  E.  F.  requisitioned  25  personnel  officers,  it  was  impossi- 
ble to  fill  the  entire  requisition  without  most  seriously  crip- 
pling the  work  in  this  country. 

THE  FIRST  PERSONNEL  SCHOOL 

The  first  Training  School  for  Personnel  Officers  was  held 
at  Camp  Meigs,  Washington,  D.  C.,  April  25th  to  May  4th 
79  officers  and  17  enlisted  men  were  in  attendance. 

The  students  were  very  largely  a  "hand-picked  lot"  as  the 
names  were  secured  by  personnel  supervisors  visiting  differ- 
ent camps  and  personally  interviewing  candidates.  In  addi- 
tion to  these,  a  considerable  number  of  excess  A.  G.  D.  officers 
were  sent  to  the  school  in  order  to  try  them  out  as  possible 
personnel  officers.  Most  of  this  group  had  previously  been 
tried  out  in  their  own  camps  and  were  reported  not  to  have 
made  good. 


TRAINING  SCHOOLS  FOR  OFFICERS        471 


The  program  was  divided  about  equally  between  the  two 
subjects  of  insurance  and  personnel  work — the  latter  includ- 
ing classification  of  men,  preparation  of  A.  G.  O.  forms, 
handling  of  P.  M.  G.  O.  forms  and  office  routine.  The  school 
was  under  the  direction  of  Ur.  Strong.  Mr.  Kendall  Weisiger 
acted  as  first  assistant  with  respect  to  personnel  work  and 
Captain  (later  Major)  E.  H.  Weston  as  assistant  with  respect 
to  insurance. 

The  program  was  as  follows: — 
Thursday,  April  25,  1918. 

8:00  A.  M.     Registration  and  Assignment  to  Quarters. 
10:00  A.  M.     Introductory  Remarks. 

(a)  Dr.  Edward  K.  Strong,  Jr.,  Member  of  Committee 
on  Classification  of  Personnel. 

(b)  Brigadier  General  P.  C.  Harris,  Adjutant  General. 
10:30  A.  M.     "Needs  of  Divisions  and  Staff  Corps  for  Skilled  Men"— 

Dr.  W.  V.  Bingham,  Member  of  Committee. 

11:00  A.  M.  "Personnel  Work  in  Divisions  and  Camps" — Captain 
B.  J.  Kempter,  Supervisor  Personnel  Work  (for- 
merly Personnel  Officer,  Carnp  Kearney.) 

11:45  A.  M.     "General  Scope  of   Personnel  Work  in   the  Army" — • 

Dr.  Walter  Dill  Scott,  Director  of  Committee. 
1:00  P.  M.     Introduction  to  Insurance  and  Allotments. 

(a)  Lieut.  Colonel  D.  Y.  Beckham,  Adjutant  General, 
Liaison  Officer  with  War  Risk  Insurance  Bureau. 

(b)  Mr.  L.  J.  Arnold,  Administrator,  Civil  Relief  Act. 

(c)  Mr.  U.  P.  Coler,  Insurance  Section,  Bureau  of  War 
Risk  Insurance. 

(d)  Mr.  J.  R.  Grace,  Allotments  and  Allowances,  War 
Risk  Insurance. 

(e)  Captain  C.  M.  Jones,  in  charge  of  Insurance,  Camp 
Lee. 

(f)  Captain   E.    H.   Weston,  in  charge  of   Insurance, 
Eastern  Department. 

3:00  P.  M.     (a)  "General  Organization  of  Committee  on  Classifica- 
tion of  Personnel." 

(b)  "General     Organization     of     Division     Personnel 
Office." 
Dr.  E.  K.  Strong,  Jr. 


472  HISTORY  OF  PERSONNEL 

Friday,  April  26,  1918. 

8:00  A.  M.  "P.M.G.O.  Forms  used  by  Local  Boards."  Mr.  J.  D. 
Donovan,  Secretary  to  Board  of  Commissioners  dis- 
charging functions  of  Adjutant  General  for  District  of 
Columbia. 

9:30  A.  M.  Drill  on  Use  of  Qualification  Card,  Section  A.  Dr.  E. 
K.  Strong,  Jr.  Section  B,  Mr.  K.  Weisiger,  Personnel 
Supervisor,  (Employment  Manager,  Southern  Telephone 
and  Telegraph  Co.,  Atlanta.) 

1:00  P.  M.     Insurance  and  Allotments   (continued). 

Saturday,  April  27,  1918. 

8:00  A.  M.     Method  of  handling  Forms  1, 1010, 1029  and  1029-A  &  B 
9:00  A.  M.     Use  of  Qualification  Card  (continued). 
10:00  A.  M.     Psychological  Examination.     Given  by  1st  Lt.  H.  C. 

Bingham,  Surgeon  General's  Office. 
11:00  A.  M.     "Use  of  Psychological  Ratings."    Major  C.  S.  Yoakum, 

Surgeon  General's  Office. 
1:00  P.  M.     Insurance  and  Allotments  (continued). 

Monday,  April  29,  1918. 
8:00  A.  M.     Demonstration   of   Receiving   and    Assigning    Men    at 

Camps. 
1:00  P.  M.     Insurance  and  Allotments   (continued). 

Tuesday,  April  30,  1918. 

8:00  A.  M.     Discussion,  Receiving  Men  into  Camp. 

9:00  A.  M.     Drill  on  Classifying  Qualification  Cards. 
11:00  A.  M.     Use  of  Forms  CCP-8,  CCP-9,  CCP-10,  CCP-16. 

1:00  P.  M.     Insurance  and  Allotments  (continued). 

Wednesday,  May  1,  1918. 

8:00  A.  M.     Drill  on  Use  of  Index  of  Occupations. 
9.00  A.  M.     Drill  on   Classifying  Qualification  Cards. 
.10:00  A.  M.     "New  Method  of  Reporting  Changes  in  Status,  Hand- 
ling   Pay    Rolls,    Etc."      Brigadier    General     P.     C. 
Harris,  Adjutant  General. 

10:30  A.  M.     "Personnel    Work    in    England,"    Major    General    K. 
Hutchison.      C.B.    D.S.O.,    Director    of    Organization, 
British  Army. 
11:30  A.  M.     "The  Committee  on  Education  and  Special  Training." 

Major  Grenville  Clark,  Adjutant  General. 
1:00  P.  M.     Insurance  and  Allotments  (continued). 


TRAINING  SCHOOLS  FOR  OFFICERS        473 

Thursday,  May  2,  1918. 

8:00  A.  M.  "Employment  Management"  Mr.  P.  J.  Reilly,  Super- 
visor of  Camp  Work  (Employment  Manager,  Dennison 
Manufacturing  Company,  Framingham,  Mass.) 

8:30  A.  M.  "Personnel  work  in  the  Quartermaster  Corps,"  Mr. 
J.  J.  Coss,  in  charge  of  Personnel  Section,  General 
Administrative  Division,  Quartermaster  Corps. 

9:30  A.  M.     Written   Examination. 
11:00  A.  M.     "Officers'  Rating  Scale."    Dr.  Walter  Dill  Scott. 

1:00  P.  M.     Insurance  and  Allotments  (continued). 

Friday,  May  3,  1918. 

8:00  A.  M.     Balancing  a  Regiment.    Discussion. 
9:00  A.  M.     "The  Need   for  Trade  Tests  and   General   Plans   for 

Such  Work."    Dr.  W.  V.  Bingham. 
10:00  A.  M.     Remarks.    Major  General  H.  P.  McCain,  The  Adjutant 

General  of  the  Army. 

10:15  A.  M.  "Installation  of  Trade  Tests  in  Camp."  Mr.  L.  B. 
Hopkins,  Supervisor  of  Trade  Test  Work  (Manager's 
Assistant,  General  Electric  Co.,  Pittsfield,  Mass.) 
10:30  A.  M.  "Demonstration  of  a  Trade  Test."  Mr.  L.  B.  Hopkins 
and  Dr.  B.  Ruml,  in  charge  of  Development  of  Trade 
Tests. 

11:15  A.  M.     Assignment  of  Men  in  a  Division.    Discussion. 
1:00  P.  M.     Insurance  and  Allotments    (continued.) 

Saturday,  May  4,  1918. 
8:00  A.  M.     "Personnel  Work,  American  Expeditionary  Forces  in 

France,"  based  on  instructions  received  May  3,  1918. 

Mr.  P.  J.  Reilly. 

9:00  A.  M.     "A.G.O.    Forms    particularly    relating    to    discharged 
men." 

Col.  E.  T.  Conley,  General  Staff. 
9:30  A.  M.     General  Review  of  Work. 
1:00  P.  M.     Interview    by    Lt.    Col.    A.    M.    Ferguson,    Adjutant 

General. 

Eight  hours  a  day  were  spent  in  class  room  work  in  lectures, 
discussions  and  examinations.  The  evenings  were  devoted  to 
preparation  of  assignments.  The  instructors  meant  that  the 
course  should  be  strenuous  in  order  that  those  not  enthusi- 
astically looking  for  hard  work  might  the  better  be  weeded 
out. 


474 HISTORY  OF  PERSONNEL 

Each  candidate  was  personally  interviewed  by  one  or  more 
of  the  instructors  and  rated  on  the  basis  of  his  (l)  appear- 
ance, (2)  personality,  (3)  technique,  or  knowledge  of  (a) 
personnel  work  and  (b)  insurance,  (4)  aggressiveness,  and 
(5)  preference.  Each  candidate  was  given  a  psychological 
intelligence  test  and  his  rating  was  considered,  as  well  as  his 
grades  in  examinations,  in  making  up  his  final  rating.  On 
the  basis  of  the  rating  and  his  own  preference  he  was  recom- 
mended for  a  particular  rank  and  position.  The  general 
policy  pursued  in  making  these  recommendations  was  not  to 
promote  a  man  nor  to  transfer  him  from  the  line  to  the 
Adjutant  General's  Department  if  there  was  any  doubt  about 
him.  Recommendations  of  all  candidates  were  made  by  Mr. 
Weisiger  and  Dr.  Strong  to  Lt.  Col.  A.  M.  Ferguson,  and 
in  addition  Capt.  Weston  reported  his  own  findings  in  the 
case  of  insurance  officers  to  Col.  D.  Y.  Beckham,  in  charge 
of  insurance  in  the  Adjutant  General's  Office. 

The  School  had  a  very  decided  effect  upon  personnel  work  all 
through  the  Army.  Although  only  93  men  were  in  attendance, 
yet  the  school  influenced  a  very  large  number  because  each 
one  went  back  and  spread  the  "gospel"  to  many  others.  And 
these  latter  could  not  fail  to  take  note  of  the  subject  when 
they  were  told  that  officers  such  as  these  had  addressed  them: 

Major  General  H.  P.  McCain,  The  Adjutant  General. 
Major  General  R.  Hutchison,  Director  of  Organization, 
British  Army. 

Brigadier  General  P.  C.  Harris,  Adjutant  General. 
Colonel  E.  T.  Conley,  General  Staff. 
Lt.  Colonel  A.  M.  Ferguson,  Adjutant  General. 
Lt.  Colonel  D.  Y.  Beckham,  Adjutant  General. 

General  Hutchison's  speech  was  printed  and  several  copies 
given  to  each  student  so  that  they  might  distribute  them  to 
best  advantage  in  their  camps.  This  speech  accomplished  a 
good  deal  in  educating  officers  as  to  what  personnel  work 
meant  as  it  very  clearly  pointed  out  how  England  had  suf- 
fered through  the  mishandling  of  its  personnel  and  how  she 


TRAINING  SCHOOLS  FOR  OFFICERS        475 

was  now  endeavoring  to  make  the  most  of  what  personnel  was 
still  available. 

The  school  also  was  of  great  help  in  building  up  a  good 
morale  among  enlisted  men  in  personnel  offices  as  it  clearly 
showed  that  capable  enlisted  men  could  be  promoted  and 
commissioned  in  personnel  work.  This  was  most  desirable 
as  many  an  enlisted  man  had  been  sent  to  a  line  Officers' 
Training  Camp  because  the  personnel  officer  did  not  feel  he 
could  stand  in  the  way  of  his  promotion  although  both  the  man 
and  the  officer  felt  it  was  a  mistake  not  to  keep  him  in  per- 
sonnel work. 

Because  of  this  change,  gradually  the  policy  developed  of 
looking  for  officer  material  within  the  personnel  office  instead 
of  outside.  But  clear  to  the  end  line  officers  who  were  good 
material  were  sent  to  the  schools.  Civilians  of  special  qualifi- 
cations due  to  business  experience  were  also  included  in  the 
schools.  Several  of  these  developed  into  first  class  person- 
nel officers. 

SECOND  TO  TENTH  PERSONNEL  SCHOOLS 

When  the  school  was  planned  there  had  been  no  thought 
of  subsequent  ones.  But  the  success  attained  by  the  first 
school  justified  the  continuance  of  the  instruction  with  the 
result  that  ten  others  followed  in  quick  succession. 

Only  two  schools  could  be  scheduled  a  month  as  all  per- 
sonnel officers  and  enlisted  men  were  needed  in  the  camps 
from  the  25th  of  the  month  to  about  the  5th  of  the  next  month 
to  handle  the  incoming  selective-service  men.  The  length  of 
the  schools  also  depended  somewhat  upon  the  situation.  It  was 
found,  however,  that  about  eight  or  nine  days  were  necessary, 
else  the  many  topics  could  not  be  covered  satisfactorily. 

The  program  at  the  various  schools  changed  to  some  extent. 
It  was,  of  course,  impossible  to  obtain  as  much  talent  away 
from  Washington  as  there  and  in  consequence  the  three  in- 
structors carried  more  of  the  work  in  the  second  to  the  seventh 
schools  than  is  indicated  in  the  program  given  above.  Local 


476  HISTORY  OF  PERSONNEL 

officers  were  used  to  some  extent,  and  in  all  but  one  school  the 
camp  commander  opened  or  closed  the  school.  The  one  excep- 
tion was  due  to  the  sudden  orders  to  entrain  received  by  the 
division  in  the  camp  with  its  resulting  rush  and  confusion. 

The  schools  varied  somewhat  with  respect  to  the  emphasis 
placed  upon  the  various  topics.  At  Camp  Bowie,  there  were 
in  attendance  a  considerable  number  of  personnel  officers 
from  Flying  Fields  and  consequently,  their  particular  prob- 
lems were  discussed  at  some  length.  At  the  Camp  Gordon 
School  a  new  feature  was  introduced  whereby  some  time  was 
devoted  toward  the  close  of  the  school  to  conferences  of  candi- 
dates interested  in  a  particular  department  of  the  Army. 
Coast  Artillery  officers  here  held  several  meetings  in  which 
many  of  their  problems  were  considered.  It  was  here  under 
the  leadership  of  Captain  V.  H.  Henderson  of  the  Depart- 
ment of  Military  Aeronautics  that  many  of  the  plans  for 
personnel  work  in  that  department  were  developed  and  very 

Attendance  at  Second  to  Tenth  Schools. 

A.G.D.        Other       Enlisted  Civilians 
Officers       Officers        Men 
May     12-17,    Camp     Bowie, 

Fort   Worth   Texas 8  67  10 

May    20-25,    Camp    Gordon, 

Atlanta,  Ga 6  37  20 

June     7-13,     Camp     Grant, 

Rockford,  111 13  43  63 

June     17-21,    Camp     Lewis, 

Tacoma,  Wash 4  10  46 

July    5-12,    Camp    Kearney, 

San  Diego,  Calif 4  25  35 

July     17-24,    Camp    Travis, 

San  Antonio,  Texas    ....        8  85  86 

Aug.     7-14.     Camp     Meigs, 

Washington,  D.  C 15  52  15  8 

Aug.     20-28,    'Camp     Meigs, 

Washington,  D.  C 4  17  56  4 

Sept.     3-11,     Camp     Meigs, 

Washington,  D.  C 2  43  39  14 


TRAINING  SCHOOLS  FOR  OFFICERS        477 

shortly  after  put  into  operation.  In  the  same  way  at  the 
Camp  Grant  School,  Captain  C.  D.  Burnham  shaped  up 
plans  for  personnel  work  in  the  Ordnance  Department. 

These  conferences  thus  accomplished  a  considerable  amount 
of  good  by  affording  an  opportunity  to  the  men  actually  in  the 
field  to  make  recommendations  as  to  how  the  work  could  be 
improved  and  also  to  emphasize  the  factors  most  injurious  to 
their  work.  The  instructors  forwarded  their  final  reports  to 
officers  in  Washington  who  were  in  a  position  to  act. 

At  the  Camp  Lewis  School,  a  new  problem  was  encountered. 
How  should  personnel  work  be  carried  on  in  the  Spruce  Pro- 
duction Division?  A  working  plan  was  mapped  out  at  the 
school.  But  nothing  very  much  ever  became  of  it  due  to  the 
relative  weakness  of  the  personnel  officers  in  the  division  and 
the  lack  of  interest  in  the  subject  by  their  superior  officers. 
The  division  probably  contained  at  the  signing  of  the  Armis- 
tice, a  greater  proportion  than  in  any  other  unit  of  improperly 
placed  men  from  the  standpoint  of  the  needs  of  the  entire 
Army. 

The  small  delegation  of  coast  artillery  officers  at  the  Camp 
Kearney  School  prepared  a  brief  statement  as  to  the  difficulties 
of  accomplishing  good  personnel  work  because  of  the  lack  of 
orders  from  the  Chief  of  Coast  Artillery.  The  instructors  en- 
larged the  report  to  include  data  obtained  from  other  schools 
and  forwarded  it  to  Washington.  After  some  delay,  changes 
were  made  by  the  Chief  of  Coast  Artillery,  which  resulted  in 
the  development  of  the  best  personnel  organization  in  any 
Staff  Corps. 

At  the  Camp  Travis  School,  there  were  in  attendance  about 
thirty  officers  and  enlisted  men  from  Kelly  Field  and  other 
nearby  fields  of  the  Department  of  Military  Aeronautics. 
This  group  went  over  the  personnel  situation  at  Kelly  Field 
very  carefully  with  the  result  that  during  the  next  few 
months  many  excellent  improvements  were  made  in  its  organ- 
ization and  operation. 

There  were  in  attendance  at  this  school  a  large  number  of 


478 HISTORY  OF  PERSONNEL 

regimental  personnel  officers  from  regiments  stationed  along 
the  border.  When  they  returned  to  their  units  they  introduced 
personnel  work  in  many  cases  with  much  success. 

The  above  notes  have  been  included  here  as  they  bring  out 
the  point  that  much  of  the  benefit  of  the  schools  lay  in  the 
opportunity  they  afforded  men  in  the  field  to  get  together 
and  intelligently  plan  their  work.  Their  recommendations 
were  also  in  many  cases  put  into  operation  after  they  had 
been  forwarded  to  Washington. 

THE  ELEVENTH  SCHOOL  AT  CAMP  SHERMAN 

The  school  at  Camp  Sherman  marks  a  decided  change  in 
the  method  of  selecting  candidates  and  of  conducting  the 
school.  Although  the  first  ten  schools  were  conducted  primarily 
to  develop  new  officers  in  personnel  work  they  had  drifted 
really  into  merely  training  the  present  force  and  into  serv- 
ing as  a  clearing  house  for  plans  concerning  the  work.  They 
undoubtedly  accomplished  a  very  great  deal  toward  the  rapid 
development  of  personnel  work  in  the  country.  But  at  the 
close  of  the  tenth  school  the  demand  for  new  and  capable 
officers  was  still  far  in  excess  of  the  supply,  and  it  was 
urgently  necessary  that  this  shortage  be  eliminated.  The 
Camp  Sherman  School  was  accordingly  planned  to  meet  this 
situation. 

The  Need  for  More  Personnel  Officers.  On  September  28, 
1918,  the  estimated  need  for  additional  officers  was  as  follows: 

To  fill  40  new  divisions  with  2  officers  each 80 

To  replace  losses  in  Personnel  Officers  of  all  kinds 

in  America  70 

Probable  demand  from  overseas 30 

Personnel  Officers  for  Trade  Test  work 70 

Miscellaneous  to  be  trained  on  request  from  various 

War  Department  Offices 50 


Total  next  9  months 800 

To  deliver  300  graduates   it  will  be  necessary   to 
school  at  least  three  hundred  fifty. 


TRAINING  SCHOOLS  FOR  OFFICERS       479 

The  Source  of  Supply  was  outlined  in  this  way: 

1.  Exceptional  enlisted  men  now  engaged  in  personnel 
work  and  definitely  recommended  and  guaranteed  by  their 
respective  personnel  officers.     (The  main  source.) 

2.  Civilians    recruited    from  .civil   life    by    Procurement 
Branch  of  General  Staff. 

3.  Unusually  able  drafted  men  just  entering  limited  serv- 
ice camps,  selected  and  recommended  by  personnel  officers. 

4.  S.  A.  T.  C.  men,  either  students  or  faculty  members, 
carefully  selected  and  assigned  to  the  personnel  school  in 
the  same  way  as  candidate  officers  will  be  selected  for  other 
officer  schools. 

6.  Personnel  officers  now  acting  for  the  S.  A.  T.  C.  that 
deserve  a  larger  outlet  for  their  abilities. 

6.  Those  officer  candidates  now  in  O.  T.  C.'s,  formerly  in 
personnel  work  and  definitely  recommended  by  their  former 
personnel  officers. 

Selection  of  Candidates.  Although  the  best  results  had  been 
obtained  in  selecting  candidates  through  personal  conferences 
with  them  before  ordering  them  to  a  school  as  was  the  case 
with  the  first  Camp  Meigs  School,  this  method  largely  fell 
into  disuse  due  to  the  rush  of  other  matters  and  the  shortage 
of  supervisors  who  could  give  their  time  to  it.  In  conse- 
quence, most  candidates  were  selected  on  the  basis  of  such  an 
order  as  this: — 

"Send  your  division  personnel  officer  and  one  of  his 
assistants  and  in  addition  two  officers  or  enlisted  men 
deemed  fitted  for  personnel  work.  The  men  selected  for 
this  instruction  should  be  of  first-class  material  as  if  they 
make  good  they  will  eventually  be  promoted  to  the  grades 
of  captain  and  possible  major." 

But  such  orders  did  not  bring  to  the  school  very  many  first- 
class  men  outside  of  those  already  in  personnel  work,  and 
too  often  weak  men  not  fitted  for  anything  but  clerical  work 
were  sent.  Such  were  all  right,  possibly,  as  non-commissioned 
officers,  but  they  could  not  qualify  as  officers  who  had  to 
administer  as  much  work  as  was  centralized  in  a  personnel 
office. 


480  HISTORY  OF  PERSONNEL 

In  consequence,  it  was  decided  that  all  candidates  for  the 
Camp  Sherman  School  should  be  certified  as  good  material 
by  the  camp  personnel  officer.  There  follows  the  instruc- 
tions sent  out  on  this  subject: 

September  26,  1918. 

1.  Early  last  spring  when  divisions  began  moving  overseas  it  be- 
came immediately  necessary  to  provide  a  large  number  of  trained 
personnel  officers  to  handle  the  camps  and  to  fit  up  new  divisions, 
staff  corps,  and  the  like. 

2.  To  this  end  a  number  of  hand  picked  men  were  sent  to  Camp 
Meigs  for  instruction  in  the  first  school  for  Personnel  Officers,  from 
which   was   graduated  a   considerable  number  of  personnel  officers 
who  have  since  shown  marked  success  in  their  work. 

3.  Following  upon  this  a  series  of  schools  was  held  throughout  the 
country  to  which  a  number  of  officers  and  men  were  sent  by  various 
camp  and  division  commanders  with  the  net  result  that  there  are 
today  in  America  a  considerable  number  of  men  who  have  been  well 
schooled  in  the  general  principles  of  Personnel  Work. 

4.  However,  since  the  majority  of  these  officers  and  men  are  already 
detailed  to  specific  duties  in  their  respective  camps,  the  total  avail- 
able trained  material  is  altogether  inadequate  to  meet  the  present  or 
future  demands  for  Personnel  Officers.     It,  therefore,  becomes  neces- 
sary to  now  set  up  a  central  school  to  which  carefully  chosen  can- 
didates are  to  be  sent  for  training  in  Personnel  work,  after  which 
they  are  to  be  assigned  wherever  they  may  be  needed  in  the  Army. 

5.  The  responsibility  of  selecting  candidates  for  this  school  is  to  be 
placed  squarely  upon  the  shoulders  of  the  Personnel  Officer,  since 
he  is  the  man  most  interested  in  securing  competent  and  well  trained 
assistants  and  successors  when  opportunity  presents  itself  for  pro- 
motion. 

6.  You  will,  therefore,  direct  your  Camp  Personnel  Officer  to  select, 
interview  and  recommend  a  number  of  officers  and  enlisted  men  of 
officer  material  to  attend  the  next  school,  which  begins   at  Camp 
Sherman  on  October   10  and  which  will  last  for  a  period  of  one 
month.     In  making  these  selections  we  hope  that  it  will  be  borne 
in  mind  that  the  weeding  out  should  be  done  before  the  school  in- 
stead of  afterwards,  and  that  this  school  will  be  expected  to  turn 
out  85  per  cent  of  the  number  in  attendance  as  acceptable  Personnel 
Officers. 

7.  In  making  his  selections  your  Personnel  Officer  will  bear  these 
requisites  in  mind: 


TRAINING  SCHOOLS  FOR  OFFICERS        481 

Appearance — Sufficiently  good  to  impress  superiors  and  to 
command  the  attention  and  respect  of  subor- 
dinates. 

Personality — Sufficiently  forceful,  tactful  and  kindly  to  insure 
the  fullest  measure  of  co-operation  from  supe- 
riors as  well  as  from  subordinates. 

Physically — Strong  enough  to  withstand  the  wear  of  long 
hours  and  tedious  work.  Limited  Service  men 
acceptable. 

Previous  Experience — Of  such  a  character  as  will  make  for 
attention  to  detail,  ability  to  give  instruction,  and 
above  all  to  organize  and  properly  direct  the  efforts 
of  subordinates. 

Intelligence — Keenly  alert  and  resourceful.    High  School  train- 
ing or  better.    "B"  intelligence  or  better. 
Interest — A  spontaneous  eagerness  for  Personnel  Work. 

8.  When  he  has  sorted  out  the  men  who  amply  fulfill  these  basic 
requirements  he  will  interview  them  and  send  a  card   (Form  CCP- 
1110  for  each  man  that  he  thinks  will  be  acceptable,  to  the  Director 
of  the  Personnel  School,  Room  528,  State  War  and  Navy  Building, 
so  that  the  Director  can  anticipate  his  probable  future  supply  and 
order  in  a  sufficient  number  of  candidates  to  fill  the  first  school. 

9.  On  each  applicant's  card  will  be  attached  one  of  the  rider  sheets 
enclosed  with  this  letter  on  which  the  Personnel  Officer  will  check  his 
appraisal  of  each  man   under  each  of  the  items  on   the  sheet.     In 
making  his  comparisons  he  will  select  an  average  Lieutenant  now 
satisfactorily  doing  Personnel  work,  and  check  the  nominee  against 
him  as  being  better,  equal,  or  poorer  than  the  average  successful 
Lieutenant. 

10.  It   is   suggested   that   the   Personnel   Officer  seek   his   material 
among  the  successful  men  in  his  office,  both  enlisted  and  commis- 
sioned, and  also  among  candidates  about  to  be  graduated  from  the 
Officer's  Training  School  in  your  camp,  and  from  any  other  similar 
source  that  you  deem  reliable. 

11.  The  men  selected  should  be  viewed  with  an  eye  to  their  abilities 
for  Personnel  work  and  since  they  are  not  to  be  used  on  such  work 
as  insurance,  enlistment,  etc.,  men  primarily  valuable  to  these  lines 
of  work  should  not  be  considered  for  nomination  to  the  school. 

12.  Previous   experience   in    Personnel   work    is,   however,   not   so 
desirable  as  potentiality  for  development  into  Personnel  Officers  of 
large  calibre,  consequently  nominees  will  be  viewed  as  to  their  capac- 
ity to  deserve  a  captain's  rank  within  the  next  year. 


482 


HISTORY  OF  PERSONNEL 


Name  of  Candidate. 
Station  


Physical 

Impressive  general  appearance 
Facial   appearance 
Energy  (punch) 

Intelligence 
Alertness 
Accuracy 
Intelligence  Test 

Leadership 
Self  Reliance 
Initiative 
Decisiveness 
Tact 
Ability  to  direct 

Personal  Qualities 
Ability  to  co-operate 
Unselfishness 
Likeableness 
Readiness  to  shoulder 
responsibility 

Value  to  Personnel  Service 
Industriousness 
Ability  to  deal  with 

Commanding  Officers 
Good  judgment 
Ability  to  plan 
Ability  to  teach 
Ability  to  organize 
Ability  to  work  with  details 
Ability  to  judge  ability 
Knowledge  and  ability  in 
Personnel  work 


a 

4)     ej  u 

be  ^q  be 

03     5s  nj 

!-.         ^  (- 

4)      o  C 


REMARKS 


TRAINING  SCHOOLS  FOR  OFFICERS        483 

Is  the  Candidate  now  ready  for  the  rank 
of  at  least  1st  Lieutenant?    Yes.    No. 

What  rank  can  he  deserve  within  one  year 
from  now? 

How  many  months  has  the  candidate  been  engaged 
in  army  personnel  work? 

Signed 


Candidates  were  in  this  way  carefully  selected  by  per- 
sonnel officers  who  knew  them.  Their  records  and  ratings 
were  then  reviewed  by  officers  at  Washington  and  the  best 
men  selected  for  the  school.  This  procedure  gave  the  best 
results  obtained  for  any  school,  as  the  candidates  were  of  a 
very  high  class.  Statistically  they  can  be  described  as  follows: 

Commissioned  officers    13 

Sergeants  major    16 

Sergeants    13 

Corporals 1 

Privates    15 

Civilians    2 

Total 60 

Average  age — 27  years,  4  months. 

Average  length  of  service — 6  months,  21  days. 

Number  of  men  with  college  education  (degrees)  ...      20 

Number  of  men  with  some  college  education 18 

Number  of  men  with  no  college  education 22 

All  had  an  intelligence  rating  of  "A"  or  "B". 

Experience  led  to  certain  changes,  and  the  letter  to  Com- 
manding Officers  of  October  28th,  calling  for  nominations 
for  the  12th  school  emphasized  these  new  points:  (1)  Sev- 
eral personnel  officers  had  clearly  not  grasped  the  fact  that 
first  class  men  were  needed,  but  instead  had  recommended 
many  very  faithful  enlisted  men  with  the  idea  of  getting 
them  commissions.  In  order  to  eliminate  this  factor  to  a  still 


484  HISTORY  OF  PERSONNEL 

greater  degree  it  was  specified  that  "the  cards  for  the  candi- 
dates will  be  held  pending  the  coming  of  a  personnel  super- 
visor who  is  charged  with  concurring  or  not  concurring  with 
your  personnel  officer  in  his  selections.  The  cards  of  those 
men  in  whose  nominations  he  concurs  will  then  be  sent  to 
Washington."  (2)  "Photographs  of  the  candidates  will  in 
each  case  be  attached  to  the  qualification  cards  as  prescribed, 
and  the  letter  of  transmittal  will  list  the  names  of  the  candi- 
dates nominated  in  the  order  of  preference  as  agreed  on 
between  the  personnel  officer  and  the  personnel  supervisor." 
(3)  Renewed  emphasis  was  placed  upon  the  need  for  men 
of  large  calibre  by  calling  for  men  "who  will  merit  at  least 
the  rank  of  Captain  within  three  months  from  graduation" 
instead  of  "within  a  year." 

Selecting  candidates  from  many  camps  is  a  very  difficult 
task.  The  above  details  have  been  ennumerated  here  as  it  is 
believed  they  are  as  near  "fool  proof"  as  it  is  possible  to 
make  them. 

Due  to  the  influenza  epidemic  and  the  quarantine  at  Camp 
Sherman,  the  school  did  not  open  until  October  23rd.  It 
continued  until  November  19,  eight  days  after  the  signing 
of  the  Armistice.  In  consequence  none  of  the  students  were 
commissioned  or  transferred  to  the  Adjutant  General's  De- 
partment, but  many  were  used  after  the  close  of  the  school 
in  the  operations  incident  to  demobilizing  the  Army. 

The  program  of  the  school  differed  in  many  respects  very 
markedly  from  that  of  the  first  ten  schools.  In  the  first  place, 
due  to  the  expected  separation  of  personnel  work  from  ad- 
jutant's work  (see  Chapter  22)  it  was  specified  that  candi- 
dates particularly  fitted  for  the  latter  kind  of  work  should 
not  be  sent.  And  consequently  much  less  attention  was  given 
to  insurance,  allotments,  handling  of  A.  G.  O.  forms  incident 
to  receiving  men  into  camp,  etc.  In  the  second  place,  con- 
siderable time  was  devoted  to  infantry  drill,  setting  up  exer- 
cises, military  courtesy,  etc.  The  daily  schedule  follows: — 


TRAINING  SCHOOLS  FOR  OFFICERS        485 

Reveille,    1st    call (i.OO  A.  M. 

Reveille  6.10  A.  M. 

Assembly 6.15  A.  M. 

Mess  Call 6.30  A.  M. 

Sick   Call    7.20  A.  M. 

Calisthenics  7.25—  7.55  A.  M. 

1st  Period— Lecture 8.00—  8.50  A.  M. 

2nd  Period— Lecture 8.50—  9.40  A.  M. 

Hrcl  Period— Drill   9.40—10.40  A.  M. 

4th  Period— Lecture    10.40—11.30  A.  M. 

Mess 12  M. 

Roll  Call 1.00—1.05  P.  M. 

5th    Period— Lecture    1.05—1.55  P.  M. 

6th  Period— Lecture 1.55—2.45  P.  M. 

7th  Period— Drill 2.45—4.15  P.  M. 

8th  Period— Lecture 4.15—5.05  P.  M. 

Retreat    5.15  P.  M. 

Study  Period 7.00—9.00  P.  M. 

The  course  of  study  aimed  to  make  each  student  familiar 
with  the  duties  of  the  personnel  office,  and  to  acquaint  him 
with  the  duties  of  most  of  the  officers  with  whom  he  would 
constantly  be  dealing,  such  as  a  Company  Commander,  the 
Adjutant,  the  Assistant  Adjutant,  who  would  be  charged  with 
insurance,  allotments,  receiving  men  into  camp,  etc.,  the  Camp 
Surgeon,  the  Psychological  Examiner,  the  Camp  Quarter- 
master, the  Chief  of  Staff,  and  the  Camp  Commander.  Be- 
sides these  instruction  was  given  upon  general  military  mat- 
ters, such  as  for  example,  kinds  of  orders ;  pay,  mileage, 
transportation  and  quarters;  correspondence  and  filing;  courts 
martial  and  articles  of  war,  etc.  Naturally  greater  emphasis 
was  placed  upon  interviewing  men,  classifying  them,  trade- 
testing,  assigning  them  to  organizations  and  preparation  of 
CCP  forms  than  any  other  duties. 

The  instructional  staff  consisted  of: 

Major  Chas.  L.  Abel,  Camp  Personnel  Officer,  in  charge. 
Lieut.  G.  C.  Kirk,  Senior  Instructor. 
Lieut.  H.  S.  Lytle,  Assistant  Instructor. 


486  HISTORY  OF  PERSONNEL 

Captain  S.  R.  Jenkins,  Military  Instructor. 
Lieut.  Thomas  Lindley,  Assistant  Instructor. 

A  number  of  other  officers  stationed  at  Camp  Sherman  lec- 
tured on  their  own  work.  Dr.  Strong  and  Mr.  Weisiger, 
stationed  at  Washington,  were  in  general  charge  of  the  train- 
ing program. 

PERSONNEL  SCHOOLS  FOR  TRAINING  S.  A.  T.  C. 
PERSONNEL  ADJUTANTS 

Shortly  before  the  opening  of  the  S.  A.  T.  C.  units  in 
colleges  throughout  the  country,  it  was  realized  that  personnel 
adjutants  would  be  needed  in  each  unit  to  handle  the  induc- 
tion papers,  insurance  and  allotments,  and  such  classification 
of  students  as  would  be  subsequently  called  for.  There  were 
in  session  at  that  time  three  schools  for  training  line  officers 
for  these  S.  A.  T.  C.  units  and  it  was  decided  to  retain  cer- 
tain of  these  students  for  a  post-graduate  course  in  the  work 
of  a  personnel  adjutant.  In  consequence  the  following  officers 
and  civilian  members  or  associates  of  the  Committee  on  Classi- 
fication of  Personnel  were  assigned  to  this  duty. 

1.  Students'   Army    Training    Corps    Camp,    Plattsburg, 
N.  Y. 

Mr.   Kendall  Weisiger,  in  charge. 

Major  Warren  Bigelow,  Personnel  Adjutant,  Camp 

Custer. 
1st  Lieut.  C.  F.  Donnelly,  Insurance  Officer,  Camp 

Wadsworth. 

2.  Students'  Army  Training  Corps  Camp,  Ft.  Sheridan, 
Ills. 

Mr.  J.  J.  Coss,  in  charge. 

Major  A.  I.  Moriarty,  Personnel  Adjutant,  Camp 

Pike. 
1st   Lieut.    H.    B.    Vanderblue,    Insurance    Officer, 

Camp  Grant. 


TRAINING  SCHOOLS  FOR  OFFICERS       487 

3.  Students'  Army  Training  Corps  Camp,  Presidio  of  San 
Francisco. 

Mr.  Arthur  J.  Turner,  in  charge. 
Major  R.  M.  Alton,  Personnel  Adjutant,  8th  Divi- 
sion. 
Captain  R.  G.  Bowman,  Personnel  Adjutant,  16th 

Division. 

Captain  E.  R.  Perry,  Assistant  Personnel  Adjutant, 
Camp  Lewis. 

The  three  schools  were  opened  on  September  10th,  1918, 
and  continued  for  8  days.  There  were  in  attendance  at  the 
three  schools,  respectively,  167  men  at  Plattsburg,  325  men 
at  Ft.  Sheridan,  and  60  men  at  the  Presidio  of  San  Fran- 
cisco. These  men  were  all  carefully  selected,  largely  on  the 
basis  of  personal  interviews  by  the  instructors  who  devoted 
two  to  three  days  to  this  work  prior  to  the  opening  of  the 
special  schools.  On  the  basis  of  their  recommendation  152 
men  were  commissioned  2nd  lieutenants  at  Plattsburg  and 
assigned  to  S.  A.  T.  C.  units  in  that  section  of  the  country. 
Similarly  295  men  were  commissioned  at  Ft.  Sheridan  and 
60  men  at  the  Presidio. 

A  standard  program  was  prepared  at  Washington  and  sup- 
plied each  school  with  the  understanding  that  it  be  adapted 
to  local  conditions.  In  general,  it  followed  the  lines  of  the 
program  of  the  first  ten  personnel  schools.  The  candidates 
were  also  finally  recommended  according  to  the  methods 
used  in  those  schools;  due  weight  being  given  to  grades  in 
written  examinations,  intelligence  rating  and  personal  inter- 
view. 

The  candidates  were  composed  of  both  college  instructors 
and  students  from  various  colleges  having  the  R.  O.  T.  C. 
In  placing  the  graduates,  an  instructor  might  be  returned  to 
his  own  institution,  but  the  "students"  were  in  every  case 
sent  to  some  institution  other  than  the  one  they  had  attended 
because  of  their  comparative  youth  (averaging  19  years) 
and  the  consequent  likelihood  of  a  depreciation  of  their  ability 
by  their  former  instructors  and  classmates.  The  best  men 


488  HISTORY  OF  PERSONNEL 

were   assigned   to   the   largest   and  most   important   positions 
allowing  each  his  own  preference  as  far  as  possible. 

TRAINING  SCHOOL  FOR   TRADE  TEST  OFFICERS 

Chapter  30  describes  the  work  carried  on  at  Newark  in 
training  officers  and  enlisted  men  in  trade  test  work. 

PERSONNEL  SCHOOLS  WITHIN  PERSONNEL 
OFFICES 

In  order  to  secure  greater  efficiency  in  the  work  of  the 
personnel  office,  particularly  in  such  matters  as  interview- 
ing, a  number  of  the  camps  found  it  advisable  to  organize 
local  personnel  schools.  All  the  enlisted  men  in  the  office 
were  required  to  attend  these  schools  and  were  there  given 
instruction  in  the  different  phases  of  the  work. 

One  personnel  officer  described  what  he  was  planning  to 
do  in  these  words:  "I  intend  to  give  a  series  of  talks  to  our 
two  hundred  men,  covering  all  subjects  pertaining  to  the 
induction  of  drafted  men,  in  the  making  of  their  records, 
insurance,  allotments  and  the  purpose  of  the  work.  I  will 
probably  have  each  of  my  officers  give  a  half  or  three-quar- 
ters of  an  hour  talk  and  then  have  one-half  hour  discus- 
sion on  each  subject,  so  that  the  men  in  the  various  depart- 
ments will  not  only  know  something  of  the  work  in  their  own 
department,  but  in  every  other  department.  The  discussion 
may  bring  out  talent  which  might  be  lost  sight  of  at  the 
present  time." 

Another  officer  reported  this  program  which  he  inaugurated 
after  a  Personnel  School  had  been  in  his  camp.  "The  men 
take  exercise  from  7:00  to  7:30  each  morning.  From  7:30  to 
8 :00,  during  the  receiving  of  the  draft,  we  have  'get-together' 
meetings  in  which  points  which  have  arisen  the  previous  day 
are  discussed  and  methods  which  tend  to  efficiency  are  out- 
lined. In  this  manner  the  men  who  were  unable  to  go  to 
the  Personnel  School  are  being  instructed  and  their  work  is 
showing  material  improvement.  During  the  slack  period  be- 


TRAINING  SCHOOLS  FOR  OFFICERS        489 

tween  drafts,  these  meetings  are  being  held  from  7 :30  to 
8 :30,  and  I  have  invited  the  personnel  officers  of  the  — st 
and  — th  Infantry  Regiments  to  attend  and  thus  will  be 
able  to  instruct  them  in  personnel  work,  on  which  at  present 
they  have  a  rather  vague  understanding.  Either  myself  or 
Lieut.  P.  are  present  at  each  of  these  meetings." 

In  addition  to  such  instruction,  in  many  camps  during  the 
lull  period  between  drafts  parties  of  enlisted  men  were 
allowed  to  visit  industrial  plants  in  the  neighboring  cities 
and  thus  became  familiar  with  the  duties  of  many  kinds  of 
workmen.  This  enabled  them  to  interview  such  workmen  as 
they  appeared  in  the  draft  with  much  greater  efficiency.  And 
it  also  raised  the  morale  within  the  personnel  office  very 
materially.  • 

TRAINING  SCHOOL  FOR  TRANSPORT  PERSONNEL 
ADJUTANTS 

In  order  to  expedite  the  handling  of  personnel  records  of 
returning  officers  and  enlisted  men,  personnel  adjutants  were 
assigned  to  transports.  Eighty-one  officers  were  given  a 
thorough  course  of  instruction  in  their  duties  commencing  on 
January  9,  1919.  This  consisted  of  three  days  of  lectures 
by  officers  most  familiar  with  the  various  phases  of  the 
work,  followed  by  practical  instruction  in  debarkation  work. 
After  the  officers  had  shown  that  they  thoroughly  under- 
stood their  duties  they  were  assigned  to  transports. 

The  school  was  under  the  direction  of  Major  J.  Perry 
Moore,  Personnel  Adjutant,  Port  of  Embarkation,  Hoboken, 
New  Jersey.  Topics,  such  as  the  following  were  presented: 
General  purpose  and  duties  of  Transport  Personnel  Adju- 
tants; debarkation  regulations,  co-ordination  of  debarkation 
departments;  preparation  of  passenger  lists,  landing  returns, 
individual  records;  forms  required  for  sick,  wounded  and 
convalescents,  and  method  of  tagging  and  debarking  sick  and 
wounded;  etc. 


490  HISTORY  OF  PERSONNEL 

CONCLUSION 

The  training  program  outlined  above  accomplished  many 
things.  Among  others,  it  educated  many  officers  and  en- 
listed men  so  that  they  were  fitted  for  responsible  posi- 
tions in  personnel  work.  It  standardized  procedure  in  the 
camps  throughout  the  country  in  a  way  which  could  not  be  ac- 
complished otherwise.  And  it  so  stimulated  both  officers  and 
enlisted  men  and  made  them  feel  that  they  belonged  to  a  big 
and  very  much  worth  while  branch  of  the  Army,  that  they 
threw  themselves  into  the  work  with  a  great  deal  of  enthus- 
iasm. It  also  showed  them  how  personnel  work  in  their 
particular  kind  of  a  camp,  staff  corps,  etc.,  fitted  into  the 
general  plan  for  the  whole  Army  and  thus  lifted  them  out  of 
a  purely  local  and  sometimes  selfish  utilization  of  personnel. 


CHAPTER  39 

HISTORY  OF  THE  WAR  SERVICE  EXCHANGE 
ORGANIZATION  OF  WAR  SERVICE  EXCHANGE 

Early  in  the  expansion  of  the  War  Department  it  became 
apparent  that  a  definite  liaison  between  the  Department  of 
Labor,  representing  industry,  and  the  War  Department, 
representing  the  Army,  should  be  established.  On  December 
31,  1917,  The  Adjutant  General  addressed  a  memorandum 
to  the  Chief  of  Staff  suggesting  that  it  would  be  "very  ad- 
visable to  establish  closer  and  regular  relations  with  the  De- 
partment of  Labor,"  and  recommending  "that  the  Department 
of  Labor  be  requested  to  designate  a  representative  on  its 
part  who  shall  be  authorized  to  deal  with  this  office  and  the 
War  Department  generally." 

The  problem  of  labor  supply  had  already  occupied  the  at- 
tention of  the  Committee  on  Classification  of  Personnel  in 
the  Army.  The  recommendation  was  therefore  made  to  the 
Chief  of  Staff  that  an  officer  be  assigned  to  the  Committee 
"to  act  in  conjunction  with  the  Committee  and  to  cooperate 
especially  with  the  Department  of  Labor."  An  interchange 
of  notes  and  preliminary  conferences  showed  that  all  parties 
concerned  were  of  one  opinion,  and  on  January  18,  1918,  less 
than  three  weeks  from  the  date  of  the  initial  note,  The  Adju- 
tant General  issued  the  following  announcement  on  behalf  of 
the  War  Department: 

"Subject:    Establshment  of  War  Service  Exchange. 

"1.  There  has  been  established  as  part  of  this  office  an 
organization  to  deal  with  offers  of  service  to  the  War  De- 
partment and  to  supply  men  for  special  purposes  in  the 
Army.  This  will  be  known  as  the  War  Service  Exchange. 

"2.  The  functions  of  the  War  Service  Exchange  will  be 

491 


492 •  HISTORY  OF  PERSONNEL 

(a)  to  answer  inquiries,  written  and  verbal,  of  persons 
desiring  to  serve  in  the  Army;  (b)  to  keep  informed  of 
the  needs  of  the  various  branches  of  the  service  as  to 
personnel  and  to  direct  suitable  persons  as  to  where  and 
how  to  apply;  (c)  to  cooperate  with  the  Department  of 
Labor  and  other  useful  agencies  in  locating  and  supplying 
men  needed  for  special  purposes  by  various  branches  of 
the  service. 

"3.  It  is  emphasized  that  the  purpose  of  the  new  organi- 
zation is  not  to  supersede  or  to  interfere  with  the  Personnel 
work  of  the  Staff  Departments,  but  to  supplement  their 
work  and  to  cooperate  with  them  to  the  fullest  extent. 

"4.  The  War  Service  Exchange  will  be  located  at  Room 
528,  War  Department,  telephone,  Branch  54. 

"5.  It  is  requested  that  all  Staff  Departments  cooperate 
in  making  the  War  Service  Exchange  of  the  greatest  pos- 
sible assistance  to  themselves  and  to  the  service  as  a  whole." 

This  announcement  contained  no  provision  for  funds.  The 
new  organization  was  to  be  financed  by  the  Committee  on 
Classification  of  Personnel,  which  was  rapidly  outgrowing 
its  budget.  Furthermore,  the  announcement  merely  requested 
"that  all  Staff  Departments  cooperate  in  making  the  War 
Service  Exchange  of  the  greatest  possible  assistance  to  them- 
selves and  to  the  service  as  a  whole."  There  was  no  specific 
authority  requiring  departments  to  route  all  tenders  of  serv- 
ice through  the  new  organization,  or  to  consider  or  report  on 
offers  received  from  it. 

Nevertheless,  the  War  Service  Exchange  opened  its  office 
in  Room  530,  State,  War  and  Navy  Building,  and  proceeded 
to  consider  policies  and  methods.  Mr.  Winslow  Russell  was 
placed  in  charge.  Associated  with  him  at  the  start  were 
Major  E.  N.  Sanctuary  (the  officer  assigned  to  the  Com- 
mittee to  cooperate  with  the  Department  of  Labor),  Mr. 
John  J.  Coss,  Mr.  Hugh  F.  Magee,  and  two  stenographers. 
During  the  previous  summer  Mr.  Coss  in  the  employ  of  the 
Committee  on  Public  Information  had  prepared  a  book  de- 
signed to  aid  volunteers  to  find  the  place  of  their  greatest  use- 
fulness in  Government  work.  It  was  natural  for  the  Com- 


WAR  SERVICE  EXCHANGE 493 

mittee  to  secure  his  services  in  this  connection  since  he  had 
already  made  the  necessary  contact  with  all  the  various  Gov- 
ernment Departments  in  securing  the  information  required  to 
compile  the  book.  It  was  immediately  evident  that  so  small 
a  force  as  four  men  could  not  hope  to  more  than  scratch  the 
surface  of  the  work  outlined  in  The  Adjutant  General's  state- 
ment. In  consequence  the  force  was  gradually  but  steadily 
increased.  Those  who  played  more  important  roles  were  Mr. 
Carl  W.  Jones  and  Mr.  Stanley  Roth ;  Mr.  Jones  in  connec- 
tion with  recruiting  campaigns  referred  to  later,  and  Mr. 
Roth  in  connection  with  plans  for  a  centralized  personnel 
organization. 

Investigating  the  Needs  of  the  Staff  Corps.  Since  answer- 
ing inquiries  and  cooperating  with  the  Department  of  Labor 
were  functions  pertaining  to  supply  of  man-power,  it  was 
obviously  necessary  to  become  familiar  with  the  immediate 
demands  for  man-power  as  expressed  in  the  needs  of  the 
Staff  Corps.  Interviews  with  the  personnel  chiefs — civilian, 
enlisted  and  commissioned — showed  at  once  the  need  for  such 
a  clearing-house  for  personnel  matters  as  was  now  offered 
in  the  War  Service  Exchange.  They  also  showed  that  not 
only  tens  of  thousands  of  men  were  needed  immediately,  but 
that  many  needs  could  not  be  filled  from  the  draft,  since 
the  Staff  Corps  called  for  specialists  with  the  technical  and 
scientific  training  not  possessed,  because  of  youth,  by  the  aver- 
age drafted  man. 

The  Information  Blank.  There  was  immediate  need,  in 
the  first  place,  for  a  common  medium  of  exchange  between 
the  applicant,  the  Staff  Corps,  and  the  War  Service  Ex- 
change. To  satisfy  this  need,  a  form  was  drawn  up,  called 
the  Information  Blank,  which  gave  the  draft  classification 
required  by  The  Adjutant  General's  Office,  and  the  personal 
qualifications,  training  and  experience  record  of  the  appli- 
cant. The  Staff  Corps  man-power  needs  most  difficult  to 
meet  were  largely  for  officer  material,  either  men  who  could 
be  commissioned  direct  from  civil  life  or  sent  to  a  training 


494  HISTORY  OF  PERSONNEL 

camp  to  compete  for  a  commission.  The  Information  Blank 
had  to  be  detailed  and  specific,  to  insure  that  the  selected 
Blanks  finally  submitted  to  a  Corps  would  be  those  of  appli- 
cants most  likely  to  qualify. 

War  Department  Telephone  Directory.  The  second  im- 
portant discovery  made  in  the  first  day's  research  was  the 
necessity  for  a  War  Department  directory  of  telephones, 
personnel,  and  departments.  There  was  no  one  War  Depart- 
ment telephone  exchange  serving  all  departments,  but  sev- 
eral exchanges  heavily  overloaded  and  burdened  with  infor- 
mation calls.  Locations  and  telephone  numbers  were  con- 
stantly changing.  Furthermore,  there  was  no  way  of  visualiz- 
ing the  various  departments  of  the  War  Department,  their 
sub-divisions,  functions,  personnel,  and  locations.  Since  it 
was  a  function  of  the  War  Service  Exchange  to  "keep  in- 
formed of  the  needs  of  the  various  branches  of  the  service 
as  to  personnel,"  the  compilation  of  a  Directory  was  within 
the  Exchange's  powers  and  would  serve  the  twofold  pur- 
pose of  getting  acquainted  with  the  organization  of  the  War 
Department  and  helping  solve  a  critical  problem  of  com- 
munication. The  Secretary  of  War  granted  permission  for 
the  project.  The  first  Military  Telephone  Directory  was  put 
into  circulation  on  February  15,  just  a  month  after  the  War 
Service  Exchange  was  created.  The  Directory  gave  the  func- 
tions, personnel,  addresses,  and  telephone  numbers  of  every 
Department,  Bureau,  Section,  Branch  and  Unit  in  the  War 
Department.  There  were  two  divisions  of  the  Directory, 
the  Alphabetical  and  the  Classified  Sections.  Owing  to  con- 
stant changes  the  Directory  remained  up-to-date  for  only  a 
few  weeks,  but  it  relieved  to  a  large  extent  the  desperate 
telephone  confusion  existing  and  it  familiarized  the  War  Serv- 
ice Exchange  with  the  organization  and  functions  of  the 
more  than  four  hundred  working  units  of  the  War  Depart- 
ment. 

The  Exchange  compiled  the  first  two  issues  of  the  Direc- 


WAR  SERVICE  EXCHANGE  495 

tory,  thereafter  turning  over  the  revising  to  the  Director  of 
Military  Telephones. 

Sources  of  Personnel  Supply.  The  War  Service  Exchange, 
turning  to  the  actual  work  of  meeting  demands  for  men, 
found  it  was  able  to  fill  requirements  from  four  sources: 
(1)  from  written  offers  of  services,  (2)  from  personal  calls 
of  applicants,  (3)  from  the  reserve  files  in  the  Corps  them- 
selves, (4)  from  applications  instigated  by  organized  re- 
cruiting campaigns. 

HANDLING  CORRESPONDENCE  FROM  APPLICANTS 
FOR  WAR  WORK 

The  first  task  demanding  attention  was  to  answer  an 
accumulation  of  many  hundreds  of  letters  to  which  The 
Adjutant  General's  Office  had  been  unable  to  give  attention. 
In  order  to  answer  the  correspondence  as  expeditously  as 
possible  the  following  policy  was  planned:  From  this  mis- 
cellaneous assortment  of  letters,  those  should  be  selected 
which  indicated  that  their  writers  were  or  might  be  of  value 
to  the  Army  in  commissioned,  enlisted  or  civilian  capacity. 
Only  such  persons  should  receive  Information  Blanks.  Form 
letters  should  be  used  to  answer  all  but  special  cases.  In 
short,  decision  was  made  that  a  quality  standard  should  be 
maintained. 

Information  Blanks  were  issued  and  returned  to  the  War 
Service  Exchange  in  franked  envelopes.  They  were  con- 
sidered carefully  by  a  classifier,  who  classified  them  accord- 
ing to  best  usefulness,  employing  the  Committee  on  Classifi- 
cation of  Personnel  occupational  classification  (CCP-4)  with 
its  symbols.  The  Blanks  were  filed,  after  -classification, 
with  pertinent  correspondence  enclosed  in  them,  in  an  In- 
formation Blank  file  which  was  indexed  according  to  draft 
status  and  symbol  number.  When,  for  instance,  the  Ordnance 
issued  a  call  for  mechanics,  the  Information  Blank  files  were 
consulted.  If  gear  cutter  operators  were  requested,  the  draft 
age  files  were  referred  to  under  the  classification  "6  ge,"  and 


496  HISTORY  OF  PERSONNEL 

the  Blanks  so  filed  were  charged  and  submitted  to  the 
Ordnance  personnel  officer.  If  the  call  was  for  mechanical 
engineers,  highly  trained  men  were  obviously  needed  and 
the  "Over  draft"  files  were  consulted  under  the  Occupational 
Classification  "6  me."  Information  Blanks  were  submitted 
in  person  by  a  member  of  the  War  Service  Exchange  and 
each  applicant's  qualifications  discussed  with  the  personnel 
officer.  Accepted  blanks  were  charged  off  the  files  and  re- 
jected blanks  were  returned  to  the  files  subject  to  further 
call.  The  corps  personnel  officer  sent  to  the  author  of  each 
accepted  blank  further  inquiry  as  to  qualifications,  or  a 
request  to  report  for  personal  examination  either  to  Washing- 
ton or  to  the  nearest  camp  or  city  Corps  representative. 

The  occupational  file,  cross-indexed  on  cards  for  applicant's 
name,  was  kept  "live"  by  circularization  every  two  months. 
A  return  post  card  was  sent  to  each  man  whose  Information 
Blank  was  on  file,  asking  whether  or  not  his  services  were 
still  available.  If  the  post  card  was  not  returned  inside  of 
two  weeks,  the  Information  Blank  was  considered  "dead"  and 
was  removed  from  the  file.  Thus,  the  War  Service  Ex- 
change file  had  the  two  valuable  assets  of  being  built  origin- 
ally on  a  quality  standard  and  then  being  kept  up-to-date. 

Throughout  eleven  months  of  work,  the  average  percentage 
of  applicants  who  received  Information  Blanks  was  about 
20%,  the  variation  from  this  average,  as  shown  by  the  weekly 
reports  on  correspondence,  being  small.  Because  of  the 
periodic  circularization  and  the  insistent  demand  of  the  various 
Staff  Departments  for  high-grade  men,  the  War  Service  Ex- 
change files  were  kept  free  from  "dead"  material  and  had  a 
high  turnover. 

Congressional  correspondence  was  heavy  and  was  handled 
separately.  It  was  not  desirable  to  answer  congressional  in- 
quiries and  recommendations  with  form  letters,  and  a  special 
correspondent  was  delegated  by  The  Adjutant  General  to 
reply  to  congressional  letters.  The  Exchange  was  the  only 
central  congressional  service  bureau  in  the  War  Department. 


WAR  SERVICE  EXCHANGE  497 

Personal  interviews  required  mueh  attention.  Men  from  all 
over  the  country  were  coming  to  the  War  Department  to 
offer  their  services.  Few  of  them  knew  where  to  go  or  what 
to  do.  To  these  the  War  Service  Exchange  served  as  an 
information  bureau  and  routing  agency.  The  Exchange  de- 
termined not  to  attempt  to  pass  final  judgment  on  the  quali- 
fications of  any  applicant,  but  rather  to  route  applicants  to 
the  proper  places  in  the  War  Department,  permitting  the 
Staff  Sections  and  Departments  to  pass  their  own  final  judg- 
ment on  qualifications.  It  did  serve  as  a  preliminary  "weeder 
out,"  eliminating  men  obviously  unqualified  to  serve  in  capaci- 
ties such  as  they  desired.  Two  members  of  the  Exchange  de- 
voted their  entire  time  to  this  interviewing,  but  during  the 
busy  hours  of  the  day,  four  and  even  six  of  its  members  were 
needed  to  serve  the  growing  number  of  applicants.  By  April  1, 
an  average  of  1,000  personal  interviews  a  month  were  held. 
Many  technical  experts  and  highly  qualified  professional  men 
who  came  to  Washington  to  tender  their  services  to  the  Gov- 
ernment were,  through  the  War  Service  Exchange,  directed  to 
the  service  in  which  they  could  be  most  useful. 

The  reserve  files  in  the  Corps  themselves  provided  still  an- 
other source  for  filling  calls.  The  Exchange  was  often  able  to 
transfer  reserve  or  useless  applications  held  in  one  Corps  to 
another  Corps  requiring  applicants  with  these  qualifications. 
Also,  the  Storage  and  Traffic  Committee  of  the  Shipping 
Board  had  a  carefully  selected  reserve  file  of  applications, 
which  was  generously  offered  to  the  Exchange  by  Mr.  Robert 
List  a"nd  was  used  profitably. 

ENLARGEMENT  OF  WAR  SERVICE  EXCHANGE 
ACTIVITIES 

Development  of  Contact  With  Staff  Corps  and  Departments. 
The  members  of  the  Exchange  soon  discovered  that  enough 
demands  for  highly  specialized  personnel  could  be  found  in 
one  week  to  require  for  their  satisfaction  a  very  large  recruit- 
ing force  working  constantly  for  many  months.  Even  though 


498  HISTORY  OF  PERSONNEL 

by  the  first  of  April  the  War  Service  Exchange  was  receiv- 
ing an  average  of  10,000  written  and  1,200  personal  offers 
of  service  a  month,  the  amount  of  desirable  material — approx- 
imately 20% — was  small  as  compared  with  the  War  Depart- 
ment demand.  The  big  problem,  therefore,  was  to  build  some 
sort  of  field  force  distributed  over  the  entire  country,  through 
which  demand  for  men  could  be  issued  and  answered. 

The  need  for  specialists  was  so  urgent  that  each  Corps  had 
set  up  its  own  recruiting  machinery,  determining  for  itself 
the  number  of  men  it  would  require,  the  method  of  recruiting 
and  the  amount  of  money  to  be  spent.  When  a  particular 
Corps  was  in  the  field  recruiting  types  of  men  not  required 
by  another  Corps,  recruiting  efforts  were  satisfactory,  but 
more  often  two  or  more  Corps  were  recruiting  for  the  same 
type  of  men  in  the  same  localities  at  the  same  time.  The 
War  Service  Exchange  was  the  only  organization  in  the  War 
Department  which  was  attempting  to  fill  man-power  require- 
ments impartially  for  the  good  of  the  service  as  a  whole. 

Absorption  of  the  Intercollegiate  Intelligence' Bureau.  The 
Exchange  saw  that  a  material  service  could  be  rendered  the 
War  Department  if  a  single  centralized  and  standardized 
National  recruiting  service  were  substituted  for  the  many  com- 
peting and  wasteful  services  of  all  the  various  Corps.  A 
working  alliance  was  formed  with  the  Associated  Engineering 
Societies,  the  Public  Service  Reserve  and  similar  organizations. 

On  April  15,  the  Exchange  absorbed  the  Intercollegiate 
Intelligence  Bureau,  which  had  maintained  in  150  colleges 
volunteer  representatives  for  recruiting  college  men. 

Cooperation  With  the  Military  Training  Camps  Associa- 
tion. A  closer  relationship  was  also  established  at  this  time 
with  the  Military  Training  Camps  Association,  which  had 
established  volunteer  recruiting  and  information  offices  in  most 
of  the  larger  cities  of  the  country.  This  Association  had  done 
valuable  work  in  recruiting  for  the  first  officers'  training 
camps  and  could  concentrate  all  its  energies  on  the  work  be- 
cause it  had  no  other  interests  besides  that  of  securing 


WAR  SERVICE  EXCHANGE  499 

specialists  for  the  service.  It  seemed,  therefore,  to  be  the 
logical  organization  to  represent  the  War  Service  Exchange 
throughout  the  country.  The  Secretary  of  War  was  asked  to 
grant  permission  to  The  Adjutant  General  to  issue  Civilian 
Aid  Certificates  to  recruiting  representatives  of  the  Exchange. 
This  permission  was  granted  and  most  of  the  certificates  were 
given  to  members  of  the  Military  Training  Camps  Associa- 
tion as  acknowledgment  of  their  services  to  the  War  Depart- 
ment. 

A  report  was  issued  to  the  field  representatives  weekly, 
listing  the  number  of  men  required,  with  specifications  of 
each  need  as  received  from  the  various  corps.  The  field  rep- 
resentatives could  thus  recruit  to  better  purpose,  since  they 
knew  both  the  type  and  number  of  men  wanted.  On  urgent 
calls,  information  was  telegraphed  to  the  representatives  and 
the  names  and  addresses  of  interviewed  applicants  were  wired 
back. 

PLANS  FOR  A  CENTRALIZED  PERSONNEL 
ORGANIZATION 

The  Exchange  considered  that  it  was  rendering  valuable 
service  to  the  Corps,  but  that  this  service  was  spasmodic.  No 
definite  responsibility  could  be  placed  upon  the  Exchange 
because  it  was  serving  in  the  capacity  of  a  charitable  institu- 
tion and  had  no  direct  central  control  over  any  of  the  channels 
by  which  men  could  enter  the  service.  Despite  its  strategic 
location  in  the  War  Department  Building  and  its  close  liaison 
with  the  Committee  on  Classification  of  Personnel,  the  Ex- 
change had  long  felt  its  inability,  because  of  the  inadequacy 
of  its  powers,  to  aid  in  more  than  a  small  measure  to  solve 
the  growing  problems  of  Staff  Corps  personnel  supply.  Close 
contact  with  all  of  the  Corps  had  given  to  its  members  a 
thorough  knowledge  of  the  various  personnel  problems  and 
programs,  which  was  probably  possessed  by  but  few  bodies 
in  Washington  at  this  time.  It  appeared  that  each  Corps  was 
endeavoring  to  work  out  its  own  destiny  independent  of  the 


500 PI  I  STORY  OF  PERSONNEL 

other  Corps,  and  that  such  a  policy  could  not  promise  success 
because  it  involved  competing  effort  in  recruiting. 

The  Exchange  determined  therefore  to  analyze  the  prob- 
lem of  personnel  procurement  and  to  draw  up  a  plan  for 
centralized  procedure,  a  plan  which  would  incorporate  all  of 
the  fundamental  principles  on  which  a  program  of  centrali- 
zation would  need  to  be  carried  out,  but  embody  no  specific 
reference  to  particular  organizations  or  individuals.  Sum- 
mary of  the  plan  follows: 

Status  of  Demand  Centralization  Within  War  Department. 
Each  Staff  Corps  had  at  that  time  a  central  personnel  division, 
located  in  Washington,  with  commissioned,  enlisted  and  civilian 
branches.  Each  of  these  personnel  divisions  knew  the  de- 
mand for  men  from  the  requisitions  issued  to  it  by  the  vari- 
ous sections  in  the  Corps. 

How  to  Centralize.  Demand  From  All  Corps.  One  person- 
nel supply  organization  serving  all  Staff  Corps  should  receive 
periodically  from  the  Corps  Personnel  Chief  inventory  of 
man-power  needs.  Such  inventory  should  be  submitted  on 
standard  form  in  standard  terminology,  giving  full  specifica- 
tions for  each  need. 

An  instruction  book,  brief  and  concise  with  specimen  forms, 
explaining  the  method  of  requisitioning,  should  be  distributed 
to  every  section  of  every  Corps. 

Reserve  applications  on  file  by  thousands  in  every  Corps 
should  be  filed  with  the  Centralized  Organization  so  that 
available  applicants  might  be  accepted  at  once  to  fill  needs  in 
other  Corps. 

Centralized  Personnel  Organization  Would  Serve  Demand 
and  Supply  for  the  Army  Through'. 

1.  Department  Managers. 

2.  Priorities  and  Policy  Board. 

3.  Supply   Managers. 

4.  Traveling  Supervisors. 

5.  District  and  Branch  Managers. 


WAR  SERVICE  EXCHANGE  501 

The  Department  Manager.  Each  Staff  Corps  would  select 
an  officer  to  be  transferred  to  the  Centralized  Personnel 
Organization  who  would  have  charge  of  and  be  responsible 
for  the  service  of  the  Centralized  Organization  to  that  Staff 
Corps.  This  officer  should  be  intimately  familiar  with  the 
internal  organization  of  his  Corps  and  with  the  types  of  men 
required. 

The  duties  of  the  Department  Manager  would  be  as  follows : 

a.  To  see  that  requisitions,  stated  in  prescribed  form  with 
required   specifications,   came   through   promptly    from   his 
Corps. 

b.  To  see  that  men  selected  to  fill  requisitions  met  speci- 
fications. 

c.  To  keep  accurate  record  on  each  application  submitted, 
as  to  acceptance  or  rejection  of  the  applicant  by  the  Corps 
Section. 

d.  To  check  the  status  of  requisitions  daily. 

e.  To  consult  the  Supply  Manager  and  Supervisors  about 
requisitions  which  warranted  special  action  in  the  supply 
field,  such  as  emergency  calls   for  large   units   of   men  or 
for  exceptional  individual  talent. 

f.  To   present  complete   statements   of   his   Staff   Corps 
needs  to  the  Priorities  and  Policy  Board. 

The  Priorities  and  Policy  Board,     Duties: 

a.  To  confer  with  the  particular  Department  Managers 
concerned  and  determine  apportionment,  whenever  the  de- 
mand from  two  or  more  corps  for  a  specific  type  of  man 
exceeded  the  supply. 

b.  To  balance  demand  and  supply  and  determine  on  ac- 
tion to  be  taken. 

c.  To    determine    general    policy,    plan    recruiting    cam- 
paigns, and  exercise  executive  functions. 

The  Supply  Manager.    Duties: 

a.  To  keep   accurate  records   of  the  supply   sources   in 
each  occupation  on  the  basis  of  reports  submitted  by  the 
District  Managers. 

b.  To  keep  a  running  inventory  on  the  available  reserve 
in  the  files  of  the  District  Managers. 

c.  To  advise  the  Priorities  and  Policy  Board  where  to  go 
for  supply  and  what  methods  to  use  in  procuring  it. 


502  HISTORY  OF  PERSONNEL 

d.  To  transmit  requisitions  to  the  District  Managers. 

e.  To  instruct  the  Supervisors. 

The  Supervisor.    Duties: 

a.  To  inspect  the  machinery  in  the  field  and  insure  its 
operation  according  to  the  policy  determined  by  the  Priori- 
ties and  Policy  Board  and  the  Supply  Manager. 

b.  To  oversee  three  or  four  field  districts. 

The  District  Manager.  The  active  recruiting  work  would 
be  delegated  to  twelve  District  Managers,  each  administering 
a  geographical  District. 

Zonal  organization  with  central  control  would  be  prefer- 
able to  complete  centralization: 

a.  Because  of  the  size  of  the  country  it  would  not  be 
possible  effectively  to  issue,  record  and  route  the  necessary 
correspondence,    applications    and    orders    from    a    single 
Washington  office. 

b.  District  concentration  would  make  possible  intensive 
cultivation  of  supply  sources. 

c.  The  presence  of  district  assembly  points  would  make 
possible  personal  interviews  at  a  minimum  loss  of  time  and 
money. 

d.  Desirable  appointees  to  District  Managerships  would 
be  men  living  in  the  district  and  thoroughly  familiar  with 
the  commercial  and  occupational  make-up. 

Functions  of  the  District  Manager: 

a.  To  answer  inquiries,  written  and  verbal,  of  persons 
desiring  to  serve  in  the  Army. 

b.  To  maintain  a  high  quality  standard  in  the  applica- 
tions on  file  through  discrimination  in  sending  out  informa- 
tion blanks. 

c.  To  classify  all  information  blanks  and  file  them  by 
occupations. 

d.  To  keep  files  "live"  through  periodic  circularization  of 
applicants. 

e.  To  maintain  an  interviewing  staff  to  deal  with  personal 
inquiries. 

f.  To  co-operate  with  the  Department    of    Labor    and 
other  useful  agencies  in  locating  men  requisitioned  by  the 
Supply  Manager. 


WAR  SERVICE  EXCHANGE  503 

g.  To  furnish  complete  information  concerning  applicants 
to  the  Supply  Manager,  and  through  him  to  the  Department 
Managers,  and  to  cooperate  with  representatives  of  the 
various  Corps  in  arranging  interviews,  with  applicants. 

Operating  Instructions  for  District  Manager.  The  District 
Managers  should  first  concentrate  on  investigating  the  sup- 
ply of  exceptionally  rare  or  valuable  specialists,  and  should 
submit  reports  of  investigations  to  the  Supply  Manager, 
Washington. 

Second,  he  should  establish  points  of  contact:  (a)  with 
labor  organizations,  labor  groups  and  societies  of  skilled  work- 
men, engineers  and  technical  experts;  (b)  with  commercial 
and  business  organizations  and  manufacturers ;  (c)  with  uni- 
versities and  colleges,  technical  and  trade  schools;  and  (d) 
with  trade  journals,  house  organs,  newspapers,  periodicals 
and  other  publications.  District  Managers  should  attempt 
rather  to  establish  the  maximum  number  of  points  of  con- 
tact than  to  accumulate  large  numbers  of  individual  applica- 
tions. Only  limited  reserves  of  applications  to  meet  emer- 
gency demands  should  be  encouraged. 

General  Policy  of  the  Centralized  Personnel  Organization. 
The  Centralized  Personnel  Organization  would  be  an  assembl- 
ing and  directing  and  not  a  selecting  organization.  The 
final  selection  would  be  made  by  the  branch  of  the  Corps 
requisitioning  the  men.  Selection  would  be  made  possible  on 
two  bases:  (a)  on  the  basis  of  comprehensive  and  concise 
applicants'  information  blanks ;  and  (b)  on  the  basis  of  per- 
sonal interviews  arranged  by  the  District  Manager  in  co- 
operation with  individual  officers  or  examining  boards  sent 
out  over  the  Districts  by  the  Staff  Corps  at  designated  inter- 
vals. Experience  had  demonstrated  that  personal  interviews 
were  advisable  in  selecting  men  for  unusual  or  highly  respon- 
sible positions,  but  that  complete  information  blanks  were 
practicable  in  selecting  men  for  less  important  positions. 


504  HISTORY  OF  PERSONNEL 

CENTRALIZATION  OF  PERSONNEL  WORK  IN  THE 
GENERAL  STAFF 

This  plan  was  completed  on  May  17,  and  held  ready  for 
presentation  through  military  channels.  It  was  a  coincidence, 
therefore,  that  on  the  previous  day,  May  16,  the  Inspector 
General  had  called  a  conference  of  department  chiefs  to  dis- 
cuss the  problems  of  personnel  and  inter-department  wastes. 
In  this  conference  there  was  an  informal  discussion  of  per- 
sonnel problems,  with  particular  reference  to  co-ordination  of 
effort  among  the  various  branches  of  the  service,  the  desirabil- 
ity of  a  central  personnel  exchange  and  a  chief  of  personnel 
for  all  war  organizations.  At  a  second  conference,  held  the 
next  week  and  attended  by  the  personnel  chiefs  of  all  the 
Corps,  it  was  resolved  that  each  Corps  should  submit  to  the 
Inspector  General  a  plan  for  the  solution  of  the  personnel 
problem.  The  plan  of  the  War  Service  Exchange-  was  im- 
mediately submitted. 

June  passed  without  word  that  any  change  in  the  person- 
nel organization  was  contemplated.  As  the  calls  from  the 
Staff  Corps  were  increasing  it  was  advisable  for  the  War 
Service  Exchange  to  readjust  its  own  organization  to  meet 
conditions.  These  readjustments,  as  far  as  possible,  were  in 
conformity  with  the  plan  for  centralization,  a  policy,  it  was 
hoped,,  which  would  demonstrate  the  practicability  of  the  plan 
and  secure  its  quicker  adoption.  Instead,  therefore,  of  hav- 
ing several  men  from  the  War  Service  Exchange  negotiating 
with  each  Staff  Corps,  it  was  decided  to  have  one  man  as- 
signed exclusively  to  two  or  three  corps,  to  be  responsible  for 
obtaining  and  filling  requisitions  for  personnel  in  these  Corps. 
The  staff  of  the  Exchange  was  divided  into  an  interviewing 
and  correspondence  department,  an  office  administrative  de- 
partment, and  demand  and  supply  divisions.  A  personnel  re- 
quisition Blank  was  issued  to  all  personnel  chiefs  of  the  Corps, 
upon  which  all  calls  to  the  Exchange  were  to  be  submitted. 
This  blank  standardized  the  procedure  and  specifications 


WAR  SERVICE  EXCHANGE  505 

necessary   for  obtaining  men   through  the  War  Service   Ex- 
change. 

Method  of  Obtaining  Specialists.  There  were  at  this  time 
three  methods  of  obtaining  specialists  for  the  Staff  Corps: 

(1)  by  allotment  from  the  general  draft,  either  directly  to 
Staff  Corps  or  to  schools  and  from  the  schools  to  the  Corps ; 

(2)  by  selective  draft  through  the  Provost  Marshal  General'a 
Office;  (3)  by  individual  voluntary  induction  through  the  War 
Service  Exchange.    The  Committee  on  Education  and  Special 
Training  controlled  the  issuance  of  all  induction  authority.  In 
many  instances  this  Committee  decided  that  requisitions  should 
be  filled  neither  by  allotment  nor  selective  draft,  but  that  the 
personnel  officers  of  the  various  Staff  Corps  should  have  the 
exercise  of  their  own  discretion  in  choosing  men  to  satisfy  the 
needs.    In  these  cases.,  the  Committee  referred  the  requisitions 
to  the  War  Service  Exchange. 

The  second  method,  induction  of  specialists  by  selective 
draft  through  the  Provost  Marshal  General,  seemed  ideal,  and 
yet  Staff  Corps  personnel  officers  complained  of  its  lack  of 
effectiveness.  They  maintained  that  a  very  low  efficiency  in 
the  type  of  men  was  obta'ined.  The  reason  for  such  quality 
dilution  was  apparent.  The  local  draft  boards  in  many  cases 
were  unable  to  secure  complete  and  indisputable  evidence  con- 
cerning the  qualifications  of  all  of  their  draftees.  Men  who 
were  about  to  be  drafted  desired  as  promising  positions  in 
the  Army  as  possible,  and  accordingly  stated  to  the  local 
boards  in  their  questionnaires  what  they  wanted  to  be  rather 
than  what  they  were.  The  local  boards  were  unable  to  elim- 
inate such  misrepresentations,  and  so  in  filling  requisitions  by 
selective  draft  many  misfits  were  assigned  to  the  Staff  Corps. 

The  third  method,  individual  voluntary  induction,  proved 
the  most  efficient.  It  operated  with  as  high  as  ninety  per- 
cent effectiveness,  since  the  Staff  Corps  could  take  exactly 
the  types  of  men  they  wanted  and  hence  were  satisfied.  Even 
tho  most  satisfactory  to  the  Corps,  it  had  several  objection- 
able features,  from  the  general  service  standpoint.  The  Staff 


506 HISTORY  OF  PERSONNEL 

Corps  personnel  officers  desired  the  best  men  obtainable  and 
quite  naturally  overlooked  the  interests  of  the  other  Corps 
who  often  were  in  greater  need  of  these  same  men.  Most 
of  these  officers  endeavored  to  fill  their  units  with  experts, 
where  in  many  instances  semi-skilled  men  would  have  served 
as  'well,  failing  to  realize  that  the  utilization  of  none  but  ex- 
perts for  present  units  would  result  in  exhaustion  of  experts 
and  a  very  much  lower  standard  in  future  units  to  be  or- 
ganized. 

Another  objection  to  obtaining  men  by  individual  volun- 
tary induction  was  the  placement  of  men  fitted  for  general 
military  service  in  positions  for  which  men  less  well  qualified 
physically  could  be  used.  Although  the  Committee  on  Educa- 
tion and  Special  Training  had  established  control  of  this  pro- 
cedure, many  personnel  officers,  in  the  anxiety  to  obtain 
much-needed  personnel,  were  selecting  suitable  applicants 
without  regard  to  their  physical  abilities  or  inabilities. 

On  the  basis  of  these  facts,  specific  recommendations  seemed 
apparent.  It  was  obvious  that  the  determination  of  priority 
and  general  policy  concerning  personnel  should  be  entrusted 
to  an  impartial  body  which  would  act  for  the  best  interests 
of  the  entire  service  and  would  not  be  restricted  by  partisan 
considerations.  Such  a  body  adjudicating  all  requisitions  for 
enlisted  personnel  was  already  in  existence  in  the  Committee 
on  Education  and  Special  Training.  This  Committee  was 
under  the  control  of  the  Chief  of  Staff  and  included  represent- 
atives of  the  General  Staff,  Adjutant  General's  office  and  the 
Provost  Marshal  General's  office — all  impartial  bodies  con- 
cerned with  personnel  procedure. 

The  fundamental  principles  underlying  the  methods  of 
allotment  and  the  selective  draft  seemed  quite  sound.  Dis- 
satisfaction was  occasioned  by  the  incomplete  operation  of 
the  two  systems.  If  the  service  rendered  by  the  Committee 
on  Education  and  Special  Training  were  intensified  by  in- 
creasing its  personnel  and  assigning  one  officer  to  represent 
each  Corps,  and  simultaneously  the  occupational  classification 


WAR  SERVICE  EXCHANGE  507 

work  in  the  Provost  Marshall  General's  office  were  improved, 
voluntary  induction  through  the  War  Service  Exchange,  with 
the  evils  noted,  could  be  eliminated  with  decided  simplification 
in  procedure  and  without  in  any  way  impairing  the  quality  of 
the  personnel  obtained  by  the  various  Staff  Corps. 

In  June  the  Provost  Marshal  General  issued  an  order 
discontinuing  all  inductions  of  Class  One  men  until  July  1st, 
and  constituting  the  Provost  Marshal  General  the  only 
authority  for  issuing  orders  to  the  local  boards,  thus  prevent- 
ing the  Staff  Corps  from  communicating  with  local  boards  on 
inductions. 

The  induction  of  general  service  men  for  limited  service 
positions  was  prohibited,  a  new  and  important  limitation  to 
induction.  The  War  Service  Exchange  became,  therefore,  a 
recruiting  agency  for  limited  service  men  and  officer  material 
only  and  received  induction  authority  only  on  requisition  from 
the  Provost  Marshal  General's  office.  The  War  Service  Ex- 
change, as  then  organized,  seemed  destined  to  be  a  make- 
shift organization,  serving  the  Staff  Corps  with  special  types 
of  personnel  until  the  Central  Distributing  Office,  (which  had 
taken  over  the  central  personnel  control  previously  exercised 
by  the  Committee  on  Education  and  Special  Training)  the 
Provost  Marshal  General's  office  and  the  new  officer's  train- 
ing camps  for  civilians  were  functioning  to  full  capacity.  The 
War  Service  Exchange  was  duplicating  some  of  the  efforts  of 
those  more  important  organizations. 

The  staff  members  of  the  Exchange,  however,  believed  they 
possessed  a  substantial  permanent  contribution  to  offer  the 
Army  in  their  intimate  knowledge  of  the  personnel  needs  of 
the  Staff  Corps.  This  knowledge  would  make  the  Exchange 
useful  (1)  as  an  agency  for  centralizing  and  organizing  Staff 
Corps  personnel  demands  for  a  central  personnel  organiza- 
tion. (2)  as  an  agency  for  assigning  to  the  Staff  Corps  the 
rare  specialists  reported  from  the  depot  brigades  and  (8)  as 
an  agency  for  applying  the  selective  draft  to  individual  cases. 
The  War  Service  Exchange  had  not  relinquished  the  hope  that 


508 HISTORY  OF  PERSONNEL 

eventually  centralization  of  personnel  functions  in  the  War 
Department  would  come.  A  closer  co-operation,  therefore,  was 
sought  with  the  Committee  on  Classification  of  Personnel  with 
the  suggestion  that  a  central  planning  staff  be  established  in 
the  Committee  to  co-ordinate  the  numerous  activities  of  the 
Committee,  conduct  outside  research  and  recommend  adjust- 
ments to  The  Adjutant  General  which  would  improve  the  per- 
sonnel system  of  the  Army.  . 

TWO  SPECIAL  RECRUITING  CAMPAIGNS 

While  the  Exchange  was  thus  considering  the  broader 
phases  of  organization  and  policy,  it  was  also  continuing  its 
efforts  to  secure  man-power  scientifically.  Besides  routine 
work  and  many  smaller  campaigns,  it  conducted  two  major 
drives  for  specialists — for  Ordnance  officers  and  for  limited 
service  men. 

Special  Recruiting  Campaign  for  the  Ordnance  Department. 
The  Ordnance  Department  required  375  mechanics  to  be  fur- 
nished within  three  weeks  and  200  mechanics  per  month 
thereafter,  for  training  and  service  as  commissioned  officers 
in  division  ammunition  trains,  mobile  ordnance  repair  shops 
and  motorized  artillery  regiments.  Over  half  a  million  me- 
chanics were  needeed  for  the  various  Army  units  at  this  time 
and  many  times  that  number  for  war  industries.  Difficulties 
were  therefore  anticipated.  The  War  Service  Exchange,  in 
conjunction  with  the  Military  Training  Camps  Association, 
decided  to  issue  a  call  for  applicants  from  ten  cities  and, 
if  the  number  and  caliber  of  the  applicants  should  prove  en- 
couraging, to  send  out  the  Ordnance  Officers'  Examining  Board 
for  the  final  official  examination.  In  just  four  weeks  from  the 
receipt  of  the  requisition  1,011  applicants  had  been  examined 
for  mechanical  and  physical  qualifications  and  477  recom- 
mended for  commissions  as  captains  and  lieutenants.  Be- 
sides those  recommended  for  commissions,  many  not  accept- 
able as  officer  material  signified  a  desire  to  serve  as  privates 
and  were  accepted  for  the  Ordance  schools. 


WAR  SERVICE  EXCHANGE  509 

The  Ordnance  Department  stated  in  acknowledgment  to 
the  Exchange,  "It  is  believed  that  the  standard  of  excellence 
in  personnel  secured  upon  these  trips  is  higher  than  has  been 
obtained  heretofore  and  acknowledgment  is  made  for  the  ex- 
cellent work  done  in  carrying  this  endeavor  to  a  successful 
conclusion.  It  is  felt  that  the  success  of  the  work  was  assured 
by  the  careful  and  systematic  management,  and  particularly 
by  the  work  done  in  the  several  cities  in  advance  of  the 
meetings  of  the  Ordnance  Examining  Board." 

Over  a  thousand  applications  were  received  too  late  for  the 
official  examination.  These  were  submitted  to  fill  a  large  re- 
quisition for  the  same  types  of  men  received  from  the  newly 
formed  Motor  Transport  Corps.  The  War  Service  Exchange 
believed  it  had  demonstrated  that  zonal  administration  with 
centralized  control  was  not  only  a  practical  but  a  most  effec- 
tive method  of  serving  recruiting  needs  of  the  Staff  Corps. 

Special  Campaign  for  Clerical  Workers.  Before  the  cam- 
paign for  Ordnance  officers  was  completed,  the  Exchange 
undertook  another  National  drive  for  specialists.  The  Army 
was  faced  with  the  necessity  of  diluting  its  physical  force  with 
men  whose  minor  defects,  though  disqualifying  them  for  active 
field  service,  would  not  interfere  with  Staff  work.  Many 
physically  perfect  soldiers  being  used  as  clerks  could  be  trans- 
ferred to  line  work  if  limited  service  men  were  inducted  to 
replace  them. 

The  Exchange,  therefore,  undertook  a  recruiting  campaign 
for  1,800  stenographers,  accountants,  clerks,  chauffeurs  and 
inspectors  for  limited  service  with  the  Staff  Corps.  A  plan 
similar  to  that  employed  in  the  Ordnance  campaign,  with 
complete  detailed  instructions  and  assigned  quotas,  was  issued 
to  the  representatives  of  the  Military  Training  Camps  Associ- 
tion  in  fifteen  cities.  Instructions  sent  to  the  branch  repre- 
sentatives were  completed  to  minute  detail.  Copy  for  news- 
paper articles  was  furnished  giving  specific  information  to 
the  public,  and  trade  tests  for  stenographers  were  used  to 
insure  a  high  percentage  of  acceptable  applicants.  Inductions 


510  HISTORY  OF  PERSONNEL 

were  handled  completely  by  means  of  standardized  written 
information.  The  Bureau  of  Aircraft  Production  reported 
that  of  336  candidates  for  induction  as  accountants  and  in- 
spectors, 147  had  been  accepted,  and  that  in  addition  over  400 
other  applicants  had  been  offered  voluntary  induction  through 
correspondence  instigated  by  the  War  Service  Exchange 
Campaign.  The  entire  demand  of  the  Bureau  of  Aircraft 
Production  for  accountants  and  inspectors  had  not  only  been 
met  but  oversupplied  almost  100%.  In  all,  over  1,000  of  the 
1,800  specialists  required  were  furnished  to  the  various  corps. 
This  was  considered  by  the  corps  as  a  remarkable  showing  in 
view  of  the  fact  that  the  campaign  was  conducted  when  the 
supply  of  limited  service  men  was  very  much  depleted  by 
continual  draft  for  the  various  limited  service  camps. 

There  were  twenty-eight  people  employed  in  the  Exchange 
at  this  time,  occupying  five  rooms.  Between  January  18th 
and  October  1st,  9,000  personal  interviews  had  been  held  with 
applicants.  Ninety  thousand  written  applications  for  service 
had  been  received,  classified  and  assigned  where  possible.  It 
is  conservatively  estimated  that  the  War  Service  Exchange 
placed  10,000  men  in  the  service.  There  were  7,000  active 
information  blanks  from  volunteers,  classified  and  filed  voca- 
tionally and  ready  for  placement  on  call  by  requisition.  Credit 
must  be  given  to  the  Military  Training  Camps  Association  for 
its  invaluable  field  service  and  to  the  Federal  Employment 
Service,  Department  of  Labor,  for  its  co-operation. 

WAR  SERVICE  EXCHANGE  MERGED  WITH 
PERSONNEL  BRANCH,  GENERAL  STAFF 

While  the  War  Service  Exchange  was  completing  the 
limited  service  campaign,  centralization  of  personnel  proce- 
dure was  announced  by  the  General  Staff  and  a  new  Per- 
sonnel Branch  of  the  Operations  Division  of  the  General  Staff 
came  into  being.  The  members  of  the  War  Service  Exchange 
who  had  come  more  intimately  into  contact  with  the  personnel 
demand  and  supply  conditions  in  the  staff  corps  were  assigned 


WAR  SERVICE  EXCHANGE  511 

to  formulate  the  plans  for  the  Recruiting  Sub-Section  of  the 
Personnel  Branch.  These  members  used  as  a  basis  for  their 
work  the  plan  for  a  centralized  personnel  organization  which 
they  had  submitted  in  May.  They  developed  detailed  instruc- 
tions for  the  operation  of  the  Recruiting  Sub-Section,  estab- 
lishing central  control  in  the  Washington  office  and  decentral- 
ized administration  through  twelve  district  headquarters  offi- 
ces. They  also  drew  up  a  standard  application  blank,  a  pub- 
licity plan  and  other  plans  for  administrative  machinery. 

The  members  of  the  Exchange  who  had  served  in  the  inter- 
viewing, correspondence  and  office  administration  departments 
of  the  Exchange  were  assigned  the  operation  of  the  Wash- 
ington District  Headquarters  of  the  Personnel  Branch.  This 
office  was  to  serve  as  a  model  for  the  other  district  offices. 

Thus  the  idea  of  the  War  Service  Exchange — centralized 
personnel  procurement,  operating  with  central  control  and 
decentralized  administration — was  realized.  However,  just 
as  the  new  organization  was  about  to  launch  its  first  impor- 
tant campaign,  the  armistice  was  signed.  Orders  were  issued 
cancelling  recruiting  programs,  and  the  War  Service  Ex- 
change passed  into  history  along  with  the  Recruiting  Sub- 
Section  of  the  Personnel  Branch,  Operations  Division,  Gen- 
eral Staff. 


CHAPTER  40 

DEVELOPMENT  BATTALIONS 
THE  PROBLEM  OF  HANDLING  MISFITS 

Misfits  Unavoidable.  It  was  early  found  that  from  a 
variety  of  causes  many  unfit  men  appeared  in  the  camps.  In 
unaccountable  ways  men  not  at  all  fit  for  combat  service  over- 
seas were  found  in  depot  brigades,  or  receiving  depots  or 
other  recruiting  points.  Further,  men  in  the  divisions  were 
constantly  developing  disabilities  and  were  found  to  be 
unsuited  for  overseas  service,  thereby  increasing  the  accumu- 
lations of  men  only  partially  fit,  or  unfit  for  any  kind  of  ser- 
vice whatever. 

When  divisions  were  preparing  to  move  out  for  transporta- 
tion overseas  it  became  the  practice  to  discard  all  unsuitables 
for  any  reason,  often  because  of  inability  to  speak  English 
well  or  because  of  some  slight  peculiarity.  Such  men  were 
dumped  into  the  depot  brigades,  with  the  result  that  camp 
space  necessary  for  other  organizations,  or  new  divisions 
forming  was  filled  up  with  the  "lame,"  the  "halt"  and  the 
"blind,"  and  space  for  receiving  the  new  draft  was  limited 
thereby  and  the  organization  and  training  of  new  divisions 
delayed. 

The  necessity  for  promptly  handling  this  problem  in  an 
intelligent  and  thorough  way  was  finally  recognized  and  the 
General  Staff  assigned  its  solution  to  the  Operations  Division. 
In  turn  it  was  placed  in  the  hands  of  Major  (later  Lt.  Col.) 
Bernard  Lentz,  of  that  division,  for  study  and  suggestions. 

What  to  Do  With  Misfits.  About  this  time  the  Committee 
on  Classification  of  Personnel  in  the  Army  was  also  consider- 
ing the  necessity  of  using  men  of  limited  physical  ability  in 

512 


DEVELOPMENT  BATTALIONS  513 

organizations  and  for  occupations  remote  from  combat  ser- 
vice. It  had  also  been  studying  the  English  system  of  physical 
and  mental  categories,  and  their  method  of  utilizing  men  of 
trade  or  professional  ability,  who  were,  however,  not  up  to 
the  maximum  standard  physically. 

Major  Harold  D.  Corbusier,  of  the  Medical  Corps,  a  spe- 
cialist in  orthopedic  work,  brought  to  the  attention  of  the  Com- 
mittee about  this  time  a  schedule  for  "Training  Battalions" 
to  take  over  the  development  of  men  of  limited  physical 
ability.  A  meeting  was  held  on  February  22,  1918,  between 
Mr.  P.  J.  Reilly,  Mr.  J.  J.  Swan,  both  of  the  Committee,  and 
Colonel  E.  G.  Brackett  and  Major  H.  D.  Corbusier,  the  latter 
two  cf  the  Medical  Corps.  It  was  agreed  after  considerable 
discussion  that  it  was  necessary  to  give  this  matter  of  using 
limited  service  men  serious  and  immediate  consideration,  and 
it  was  recognized  that  the  Medical  Department  must  play 
the  principal  part. 

Pursuing  this  policy  the  Committee  presented  the  matter  to 
Colonel  F.  Billings,  who  was  in  charge  of  the  Reconstruction 
Service  of  the  Surgeon  General's  Office.  Lieutenant  Colonel 
Edward  King,  his  assistant,  was  assigned  to  co-operate  in  the 
work.  It  was  also  discussed  separately  and  in  detail  with 
Major  Lentz  of  the  General  Staff,  and  conferences  were  held 
with  various  others  in  a  position  to  assist. 

ORGANIZATION  OF  DEVELOPMENT   BATTALIONS 

General  Orders  No.  45.  On  May  9,  1918,  through  the 
efforts  of  Major  Lentz,  General  Orders  Number  45,  were 
issued.  This  established  development  battalions  and  provided 
for  their  organization  at  each  National  Army,  National  Guard, 
and  Regular  Army  divisional  camp,  and  in  such  other  camps 
as  may  be  directed  by  the  Secretary  of  War,  and  as  many  of 
such  battalions  in  each  place  as  might  be  necessary  to  meet 
the  conditions.  These  battalions  were  to  be  organized  under 
Table  401  for  Training  Battalion,  Infantry,  Series  D,  cor- 
rected March  22,  1918. 


514  HISTORY  OF  PERSONNEL 

Purpose  of  Development  Battalions.  The  function  of  the 
battalions  was  to  relieve  divisions,  replacement  organizations, 
etc.,  of  all  unfit  men.  There  was  to  be  conducted  in  such 
battalions  intensive  training  with  a  view  to  developing  unfit 
men  for  duty  with  combatant  or  non-combatant  forces  either 
within  the  United  States  or  for  service  abroad.  A  further 
purpose  was  promptly  to  rid  the  service  of  all  men  who,  after 
thorough  trial  and  examination,  were  found  to  be  physically, 
mentally,  or  morally  incapable  of  performing  the  duties  of  a 
soldier. 

The  control  of  these  development  battalions  was  placed 
under  the  general  supervision  of  the  camp  commander,  but 
they  were  specified  as  an  adjunct  of  the  depot  brigades  in 
places  where  such  depot  brigades  were  regularly  established. 

The  order  went  on  to  specify  how  the  men  were  to  be  trans- 
ferred to  the  development  battalions,  and  then  to  name  what 
classes  of  men  were  regarded  as  eligible  for  immediate  trans- 
fer to  such  organizations.  It  also  provided  that  in  indepen- 
dent commands  where  there  were  no  development  battalions, 
men  found  unfit  for  general  military  service  were  to  be  trans- 
ferred to  the  nearest  adjacent  development  battalions.  It 
provided  that  men  could  not  be  transferred  from  these  bat- 
talions except  on  War  Department  orders. 

It  was  recognized  that  many  new  problems  were  involved 
in  the  organization  of  these  battalions,  and  it  was  felt  unwise 
to  attempt  to  cover  every  possible  contingency  in  the  first 
instance,  but  the  order  did  provide  that  commanders  of  such 
battalions  were  to  make  recommendations  in  writing  with  the 
view  to  increasing  the  efficiency  of  the  project  within  the 
period  of  one  month. 

Board  of  Control.  For  the  purpose  of  receiving  such  sug- 
gestions and  co-ordinating  the  work,  as  well  as  with  the  idea 
of  preparing  instructions  and  orders  from  time  to  time,  a 
board  was  appointed  by  The  Adjutant  General  under  date  of 
June  10,  1918,  consisting  of  Lieutenant  Colonel  Harry  E. 
Mock  of  the  Medical  Department,  Major  (later  Lt.  Col.) 


DEVELOPMENT  BATTALIONS  515 

Bernard  Lentz  of  the  General  Staff,  and  Mr.  J.  J.  Swan  of 
the  Adjutant  General's  Department.  This  board  was  to  meet 
on  June  12,  "for  the  purpose  of  co-ordinating  the  work  in 
connection  with  the  establishment  of  battalions  under  General 
Orders  No.  4,5." 

Just  previous  to  the  meeting  Colonel  Edward  King  was 
temporarily  substituted  by  the  Medical  Department  for  Lt. 
Col.  Mock,  and  served  on  the  board  during  this  preliminary 
work.  As  a  result  of  the  board's  investigation,  instructions 
concerning  the  operation  of  development  battalions  were 
prepared  and  issued  as  War  Department  Document  No.  812, 
under  date  of  July  1,  1918.  The  purpose  of  these  instruc- 
tions was  to  make  clear  certain  points  in  General  Orders  No. 
45,  and  to  put  before  the  commanders  such  general  principles 
with  reference  to  the  practical  working  of  the  order  as  would 
insure  uniformity  of  operation  and  the  full  use  of  such 
features  as  experience  had  shown  to  be  essential  for  the  suc- 
cess of  the  plan  as  a  whole  up  to  that  time. 

Classification  of  Limited  Service  Men.  The  system  of 
classifying  limited  service  men  is  described  in  some  detail  in 
Chapter  27. 

THE  PART  OF  PERSONNEL  WORK  IN 
DEVELOPMENT  BATTALIONS 

If  the  reception  and  classification  of  men  who  are  physically 
fit  is  essential  for  proper  placement,  it  is  apparent  that  this 
is  even  more  so  in  the  case  of  men  who  are  of  a  lower  physical 
class;  and  it  was  early  evident  that  greater  care  would  be 
required  to  place  such  men  occupationally  in  the  Army.  This 
was  fully  substantiated  by  experience  in  England,  where  the 
question  of  utilizing  all  its  man  power  was  of  greater  impor- 
tance owing  to  the  smaller  number  available,  and  that  every 
man  was  an  important  asset  due  to  the  fact  that  England  had 
called  out  her  men  to  such  a  large  extent. 

About  this  time  many  officers  in  the  American  Army  began 
to  realize  that  the  same  problem  would  have  to  be  considered 


516  HISTORY  OF  PERSONNEL 

here  and  anticipated  the  time  when  the  utilization  of  all  men 
entering  the  service  would  be  seriously  taken  up. 

Co-operation  of  Line,  Medical  and  Personnel  Officers 
Necessary.  It  was  evident  from  the  start,  and  especially  in 
view  of  British  experience,  that  the  question  of  selecting  and 
placing  men  of  limited  physical  ability  required  close  co-ope- 
ration on  the  part  of  the  medical  officers  and  personnel  adju- 
tants, since  both  the  physical  side  and  the  occupational  side 
of  a  man  would  have  to  be  considered  together.  It  was  for 
this  reason  that  the  Committee  on  Classification  of  Personnel 
considered  it  wise  to  have  representation  on  the  board  having 
to  do  with  the  formation  of  the  plans  and  procedure  for 
operating  development  battalions. 

This  proved  wise  because  there  was  a  constant  tendency 
on  the  part  of  the  Medical  Department  to  regard  all  men  not 
physically  fit  as  purely  medical  cases  of  clinical  interest,  and 
to  disregard  the  occupational  phases  and  abilities  of  limited 
service  men  who  might  be  utilized  to  great  advantage  in  terms 
of  their  trade  ability. 

The  revised  plans  referred  to  below,  for  operating  develop- 
ment battalions  contemplated  a  very  careful  sorting  of  men 
sent  to  such  battalions,  and  the  closest  co-operation  between 
medical,  personnel  and  line  officers.  The  line  officer  must 
have  charge  of  training,  but  the  character  and  extent  of  train- 
ing must  depend  upon  the  recommendation  of  the  medical 
officers,  who  alone  can  determine  what  will  help  or  hurt  each 
man.  The  line  officers,  moreover,  must  take  care  of  the 
physical  training,  the  regular  army  training,  and  the  assign- 
ment of  these  men  for  various  work  in  and  about  the  camps. 

The  part  to  be  played  by  personnel  adjutants  in  this  pro- 
gram is  perhaps  best  illustrated  by  studying  what  happened 
in  the  camps  where  a  personnel  adjutant  was  not  present.  In 
general,  the  medical  officers  were  inclined  to  regard  the  bat- 
talions as  wonderful  material  for  clinics.  The  different  spe- 
cialists, unintentionally  of  course,  would  keep  men  under  dif- 
ferent kinds  of  treatment  and  training  for  much  longer 


DEVELOPMENT  BATTALIONS  517 

periods  than  was  either  necessary  or  permissible.  On  the 
other  hand,  the  line  officers  were  inclined  entirely  to  disregard 
the  instructions  received  from  the  surgeons  relating  to  the 
amount  of  training  or  work  that  a  soldier  should  do.  This 
resulted  very  often  in  the  line  officer  undoing  all  that  the 
surgeon  was  trying  to  accomplish.  It  was  not  at  all  unusual 
to  find  a  whole  company  assigned  to  different  details,  and 
therefore  unable  to  take  prescribed  treatments  at  the  various 
stations. 

The  personnel  adjutant's  business  was  to  correlate  these 
two  activities.  He  had  to  persuade  the  surgeons  that  this  was 
not  a  clinic,  but  was  designed,  to  increase  the  man  power  of 
the  Army  in  the  shortest  possible  time.  He  had  to  convince 
the  army  officers  that  this  was  a  reasonable  and  necessary 
addition  to  army  activities  and  that  their  part  was  definitely 
to  carry  out  the  suggestions  from  the  Surgeon  General's  Office 
as  to  hours  and  amount  of  training. 

Need  of  Real  Personnel  Work.  The  personnel  adjutant 
was  able  to  do  all  this  the  more  intelligently  because  he  had 
the  man's  full  record  on  the  qualification  card,  and  could 
intelligently  advise  each  department  regarding  the  army  use- 
fulness of  the  soldier.  In  fact,  in  the  camps  where  personnel 
adjutants  were  efficient,  the  line  and  medical  officers  -both 
depended  very  largely  upon  the  personnel  adjutant's  judg- 
ment in  finally  releasing  or  assigning  a  man  to  definite  work 
in  the  camp  or  overseas. 

One  illustration  will  probably  suffice.  Assuming  that  a  man 
had  taken  treatment  prescribed  by  the  medical  officer  and  a 
maximum  improvement  had  been  obtained  and  assuming  that 
at  the  same  time  lie  had  taken  an  allotted  amount  of  military 
training  and  exercise,  his  case  then  comes  up  for  the  final 
decision  before  the  development  battalion's  surgeon  and  the 
major  commanding  the  development  battalions.  The  personnel 
adjutant  is  present  with  a  card  giving  full  information  regard- 
ing the  soldier.  The  settlement  of  the  case  nine  times  out  of 
ten  is  based  on  the  information  contained  on  the  qualification 


518  HISTORY  OF  PERSONNEL 

card,  namely,  what  this  man  did  in  private  life  and  what  he 
is  fitted  to  do  in  the  Army.  If  he  is  a  shoemaker  and  has  flat- 
foot,  there  is  no  reason  why  he  should  not  perform  reasonable 
service  in  the  Army.  If  he  is  a  plumber  with  missing  teeth, 
there  is  no  reason  why  he  should  not  work  as  a  plumber  in 
the  Army. 

In  other  words,  personnel  work  has  been  the  single  unit 
correlating  and  wisely  directing  the  activities  of  the  two  other 
departments  existing  in  development  battalions. 

PLANS  FOR  IMPROVING  DEVELOPMENT 
BATTALIONS 

Defects  in  Original  Plans.  Practical  experience  with  the 
development  battalions  as  organized  under  General  Orders 
No.  45,  and  early  operating  reports,  Form  CCP-601,  coming 
in  for  June  and  July,  1918,  brought  out  difficulties  and 
defects,  the  chief  of  which  may  be  summarized  as  follows: 

1.  Thousands  of  men  unfit  in  one   way  or  another  were 
transferred  to  the  development  battalions  who  should 
have  been  assigned  to  duties  they  were  competent  to 
perform  within  the  Army.     Many  of  these  were  left 
behind  as  divisions  moved  overseas. 

2.  Many  men  were  accepted  who  later  turned  out  to  be 
unfit  and  were  transferred  to  development    battalions 
when  they  should  have  been  discharged  on  Surgeon's 
Certificate  of  Disability. 

3.  Calls  for  limited  service  men  brought  to  camps  many 
men  who  were  unfit  for  immediate  use,  and  hence  be- 
came development  battalion  cases. 

4.  In  many  cases  perfectly  fit  men  were  also  transferred 
to  these  battalions. 

5.  No  outlet  was  provided  for  this  heavy  influx  and  accu- 
mulation of  men. 

6.  Many  inferior  officers  were  assigned    to    development 
battalions  because  of  shortage  or  other  reasons,  with 
the  result  that  instructions  were  not  carried  out,  and 
training  moved  very  slowly  and  imperfectly. 

7.  The  general   shortage   of    officers    prevented    securing 
anything  like  an  adequate  supply.     This    resulted    in 


DEVELOPMENT  BATTALIONS  519 

delays  in  sorting  and    classifying    the    men,    medical 
treatment  and  training. 

8.     Inadequate  housing  was  also  a  serious  factor,  and  en- 
dangered the  health  of  thousands. 

Plans  for  Changes  Eased  on  Experience.  The  first  rush 
and  confusion  described  was  anticipated  to  some  extent,  and 
investigations  and  studies  of  all  phases  were  under  way  since 
May  9,  1918,  for  the  purpose  of  securing  absolute  data  to 
enable  accurate  and  final  recommendations  to  be  made.  As 
these  reports  of  operation  came  in  from  development  bat- 
talions these  various  defects  were  called  to  attention  and  sug- 
gestions for  improvements  were  offered.  To  test  out  plans  a 
model  battalion  was  organized  at  Camp  Meade,  and  officers 
from  various  other  camps  were  called  there  to  perfect  methods 
for  general  use.  Various  other  steps  were  taken,  such  as  the 
assignment  of  medical  officers  as  inspectors  and  the  appoint- 
ment of  Mr.  Henry  H.  Wellman  as  General  Supervisor  for 
the  Adjutant  General's  Department,  to  visit  and  standardize 
methods  in  the  operation  of  development  battalions. 

Ultimately  a  report  was  presented  to  the  Board,  and  a  new 
order  to  replace  General  Orders  No.  45  was  prepared  in  con- 
ference with  all  departments  interested. 

A  manual  for  the  operation  of  development  battalions  to 
supplement  the  new  general  order,  and  to  replace  Document- 
No.  812  which  amplified  the  original  General  Orders  No.  45, 
was  in  process  of  construction.  This  was  to  include  complete 
and  definite  instructions  on  all  phases  of  development  bat- 
talion operation.  It  would  have  been  complete  enough  to  per- 
mit a  competent  officer  to  organize  and  operate  a  development 
battalion  in  every  respect. 

Had  the  war  continued  the  work  of  development  battalions 
would  have  increased  in  importance.  They  would  have  fur- 
nished a  considerable  supply  of  limited  service  men  to  replace 
and  liberate  large  numbers  of  other  men  fit  for  general  service 
overseas. 

Revised  General  Order  to  Replace   G.   0.  No.  45.     This 


520  HISTORY  OF  PERSONNEL 

new  order  was  about  to  be  issued  when  the  armistice  was 
signed  on  November  11,  and  an  order  issued  on  November  15, 
1918  to  begin  demobilizing  development  battalions  went  into 
effect.  The  new  order  is  printed  here  in  full  as  it  presents 
the  solution  as  to  how  development  battalions  should  be 
operated  in  the  light  of  experience  up  to  November  11,  1918. 

"1.  General  Order  No.  45,  War  Department,  May  9th,  1918,  is 
hereby  revoked  and  the  following  substituted  therefor;  such  other 
instructions  as  conflict  with  the  following  order  are  also  revoked. 

Under  the  authority  conferred  by  the  Act  of  Congress,  "Authoriz- 
ing the  President  to  Increase  Temporarily  the  Military  Establish- 
ment of  the  United  States,"  approved  May  18,  1917,  and  the  Act 
of  Congress  approved  July  9,  1918  (Pub.  193),  the  President  directs 
that  there  be  organized  for  the  period  of  the  existing  emergency  at 
each  divisional  camp,  and  in  such  other  camps  or  stations,  as  may 
be  directed  by  the  Secretary  of  War,  one  or  more  development  bat- 
talions and  a  headquarters  for  development  battalions  to  be  organ- 
ized under  Table  400,  Receiving  Battalion,  Depot  Brigade,  Series  D, 
corrected  to  August  13,  1918. 

In  camps  where  one  development  battalion  is  located,  headquarters 
for  the  development  battalion  will  consist  of  authorized  headquarters 
as  provided  for  in  Table  400,  Receiving  Battalion,  plus  one  first 
lieutenant  personnel  officer.  Additional  commissioned  personnel  (in- 
cluding a  chief  surgeon  for  the  development  battalion)  will  be  de- 
tailed from  officers  on  duty  with  the  development  battalions  as 
needed. 

In  camps  where  two  or  more  development  battalions  are  located, 
headquarters  for  development  battalions  will  consist  of: 

1.  Lieutenant  Colonel   1 

2.  Major,  Medical  Corps 1 

(Chief  Surgeon,  Development  Battalions) 

3.  Captains  2 

(1  adjutant,  1  personnel  officer) 

Additional  commissioned  personnel,  as  needed  by  headquarters  for 
development  battalions  (authorized  above  for  two  or  more  bat- 
talions) will  be  detailed  from  officers  on  duty  with  development  bat- 
talions. Enlisted  personnel,  to  assist  the  headquarters  for  develop- 
ment battalions  will  be  detailed  on  special  duty  from  the  enlisted 
personnel  provided  for  headquarters  Receiving  Battalion,  Table  400. 
The  officers  authorized  herein  will  be  provided  as  prescribed  in 


DEVELOPMENT  BATTALIONS  521 

the  third  paragraph  of  section  I  and  by  section  IX  of  the  Act  of 
May  18,  1917,  and,  as  far  as  practicable,  will  be  selected  from  those 
who  are  physically  disqualified  for  combatant  service. 

Training  cadres  for  companies  in  Development  Battalions,  and 
enlisted  men  as  above  prescribed,  for  headquarters,  development 
battalions,'  will  be  selected,  as  soon  as  possible,  from  those  who  have 
been  classified  C-l  and  C-2.  They  will  not,  as  a  rule,  be  transferred 
from  development  battalions  unless,  as  time  goes  by,  they  become 
fit  for  general  military  service.  Special  medical,  morale  and  psychol- 
ogical officers  in  addition  to  the  personnel  prescribed  above  may  be 
attached  to  the  development  battalions  as  necessary. 

J<2.  Development  Battalions  have  been  authorized  for  the  definite 
purpose  of  relieving  combatant  forces,  and  other  special  units,  of  men 
.disqualified  by  physical  defects  or  for  other  reasons.  The  functions 
of  the  development  battalions,  therefore,  are: 

(a)  To  furnish  a  center  for  the  reception  of  all  such  men. 

(b)  To   conduct   intensive   training  with   a   view   to   developing 
unfit  men  along  lines  of  physical,  functional  and  vocational 
reconstruction   for  duty  with  combatant  or  non-combatant 
forces. 

(c)  To  classify  and  assign  men  to  useful  duty  in  the  service  or 
to  promptly  rid  the  service  of  all  men  who,  after  thorough 
trial  and  observation,  are   found   incapable  of  performing 
useful  duty  as  soldiers. 

"3.  Development  battalions  will  be  conducted  as  separate  camp 
activities  directly  under  the  camp  commander. 

"4.  The  following  procedure  in  connection  with  the  transfer  of  men 
to  the  development  battalions  will  be  observed  in  camps  where  the 
establishment  of  such  battalions  is  authorized: 

(a)  In  connection  with  each  headquarters  for  development  bat- 
talions there  will  be  appointed  a  Clearing  Board  which  will  consist 
of  the  Chief  Development  Battalion  Surgeon,  the  personnel  officer 
and   one  line  officer.     The   Camp   Surgeon   will   make   available   for 
the  use  of  the  Clearing  Board,  such  special  medical  officers  as  may 
be  necessary  for  examination  and  consultation  purposes.     The  Chief 
Development   Battalion   surgeon   is   the  member  of  this   Board  re- 
sponsible  for   the  final  classification  of  men   appearing  before  the 
Board. 

(b)  When  an  enlisted  man  is  inapt  or    does    not    possess    the 
required  degree  of  adaptability  for  military  service;  or  has  not  suf- 
ficient knowledge  of  the  English  language  to  enable  him  to  properly 
perform  his  duties;  or  gives  evidence  of  habits  or  traits  of  character. 


522  HISTORY  OF  PERSONNEL 

other  than  those  for  which  trial  by  court  martial  should  be  employed, 
that  render  his  service  in  the  organization  undesirable;  or  is  dis- 
qualified for  service  physically  through  his  own  misconduct  or  other- 
wise; or  is  an  alien  enemy  or  allied  alien  enemy;  or  an  alien  who  is 
not  a  declarant  and  has  been  drafted  through  his  ignorance  of  his 
rights  under  the  selective  service  law,  or  for  any  other  reason,  is 
not  fit  to  perform  the  duties  of  a  soldier,  his  company  or  detach- 
ment commander  will  report  the  facts  to  the  commanding  officer 
who  will  appoint  a  board  consisting  of  one  officer,  preferably  the 
summary  court.  This  board  will  determine  whether  or  not  the  soldier 
should  be  sent  to  the  Clearing  Board  with  a  view  to  transfer  to 
the  development  battalion.  When  transfer  to  the  development  bat- 
talion on  account  of  physical  disability  is  contemplated,  the  board 
will  consult  a  medical  officer  before  transfer  is  recommended. 

(c)  The  Clearing  Board  will  examine  all  men  properly  brought 
before  it  and  will   dispose  of  them  as  follows: 

Men  considered  fit  for  duty  in  the  organization  to  which  they  be- 
long will  be  returned  to  said  organization. 

Men  subject  to  discharge  on  surgeon's  certificate  of  disability  will 
be  immediately  recommended  for  discharge. 

Men  whose  conditions  and  usefulness  can  be  improved  by  develop- 
ment and  instruction  will  be  transferred  to  development  battalions. 

Men  found  suitable  by  the  Clearing  Board  for  immediate  assign- 
ment to  duty  will  be  classified  as  available  for  transfer  and  will 
be  held  in  development  battalions  until  transferred. 

All  recommendations  of  the  Clearing  Board,  including  return  to 
original  organization,  assignment  to  development  battalion,  available 
for  transfer  after  classification  or  discharge  for  other  than  physical 
reasons,  will  be  submitted  to  the  camp  commander  for  approval 
or  disapproval  and  the  camp  commander  or  authorized  representative 
will  promptly  issue  the  necessary  orders  to  carry  his  decisions  into 
effect.  Recommendations  for  discharge  for  physical  reasons  will 
be  disposed  of  according  to  existing  regulations. 

(d)  Camp  commanders  are  hereby  authorized  to  issue  discharge 
recommended  by  the  Clearing  Board  "By  Order  of  the  Secretary 
of  War."    This  authority  applies  not  only  to  discharge  on  surgeon's 
certificate  of  disability  under  existing  instructions,  but  also  to  any 
other  cases  where,  in  the  opinion  of  the  camp  commander,  such  dis- 
charge is  for  the  best  interests  of  the  service.     The  intention,  how- 
ever, is  that  practically  all  discharges  recommended  by  the  Clearing 
Boards  should  be  on   surgeon's  certificate  of  disability  and  other 
processes  for  discharge  should  not  be  used  except  when  the  sur- 
geon's certificate  of  disability  is  clearly  unsuitable. 


DEVELOPMENT  BATTALIONS  523 

(e)  For  the  purpose  of  this  order,  such  independent  commands 
as  are  adjacent  to  and  intimately  connected  with  divisional  camps 
or  cantonments,  will  be  considered  a  part  of  such  camp  or  can- 
tonment. 

•'5.  Within  the  development  battalions  men  will  be  grouped  de- 
pending upon  physical  disability,  extent  and  character  of  training, 
intelligence,  nationality,  or  other  conditions.  Men  who,  after  thorough 
trial  and  observation,  show  that  they  cannot  be  made  useful  in  some 
capacity,  will  be  discharged.  In  exceptional  cases,  and  then  only 
upon  recommendation  of  the  Clearing  Board,  will  men  be  kept  in 
development  battalions  under  treatment  and  training  for  a  period 
exceeding  two  months.  The  number  of  such  men  kept  for  more 
than  two  months  will  be  reported  on  the  monthly  summary  report, 
Form  CCP-601.  As  a  rule,  men  should  either  be  made  available 
for  assignment  within  two  months  or  they  should  be  discharged. 

"6.  While  men  are  undergoing  treatment  and  training  in  the  de- 
velopment battalions,  they  will  not  be  detailed  for  guard,  fatigue 
or  other  duty  outside  the  development  battalions.  Men  who  have 
been  classified,  and  while  awaiting  assignment,  may  be  detailed  for 
such  duty  in  the  camp. 

"7.  The  Clearing  Board,  as  defined  above,  will  classify  all  men 
in  development  battalions  in  accordance  with  Circular  No.  7,  War 
Department,  October,  8,  1918.  Transfers  and  discharges  from  de- 
velopment battalions  will  be  made  only  after  recommendation  by  the 
Clearing  Board.  Camp  commanders  are  hereby  authorized  to  trans- 
fer classified  men  from  development  battalions  to  organizations 
within  their  respective  camps.  Class  A  men  will  and  Class  C-l 
men  of  special  qualifications  may  be  transferred  to  combatant 
organizations  intended  for  overseas  service.  Classes  C-l  and  C-2 
men  may  be  transferred  to  non-combatant  organizations  within 
the  camp  to  fill  authorized  vacancies  or  to  replace  men  who 
are  fit  for  overseas  service.  Men  who  are  designated  as  "star" 
men  on  form  CCP-15  will  not  be  transferred  from  development 
battalions  except  by  War  Department  order.  Transfers  as  pro- 
vided for  above  will  be  made  by  camp  commanders  between 
the  first  and  twentieth  of  each  month,  both  dates  inclusive. 
Beginning  on  the  twenty-first  of  each  month,  the  occupational  report 
CCP-15  will  be  prepared.  This  report  will  include  all  men  in  de- 
velopment battalions  who  are  then  available  for  transfer  and  who 
have  not  actually  been  transferred.  Separate  reports  on  form  CCP- 
15  will  be  prepared  for  men  of  classes  A,  C-l,  and  C-2  (formerly 
Ratings  1,  2,  and  3).  Separate  reports  will  be  made,  in  the  same 
manner  covering  colored  men.  These  reports  will  be  mailed  so 


524  HISTORY  OF  PERSONNEL 

as  to  reach  the  Adjutant  General's  office  (Room  528)  not  later 
than  the  first  of  the  following  month.  Men  so  reported  will  be 
transferred  out  of  development  battalions  only  upon  orders  from 
the  War  Department. 

"8.  In  posts,  camps,  or  stations  where  the  number  of  men  is  not 
sufficient  to  warrant  the  establishment  of  a  development  battalion, 
the  classes  of  men  enumerated  in  paragraph  4b  (except  venereals 
who  will  be  treated  at  their  stations)  will  be  transferred  to  the 
nearest  development  battalion.  The  proceedings  of  the  board  (one- 
officer,  preferably  the  Summary  Court),  appointed  to  recommend 
transfers,  will  be  sent  for  approval,  to  Department  Headquarters, 
when  troops  are  under  the  jurisdiction  of  such  commander.  In  cases 
arising  at  arsenals,  etc.,  that  are  within  the  territorial  limits  of 
the  department  but  are  ordinarily  exempted  from  the  control  ot 
the  department  commander,  recommendations  for  transfer  to  de- 
velopment battalions  will  be  likewise  sent  to  Department  Headquar- 
ters. In  these  cases  department  commanders  will  issue  the  necessary 
orders  for  transfer,  after  first  ascertaining  from  the  commanding  offi- 
cer, under  whose  jurisdiction  the  nearest  development  battalion  is 
placed,  that  accommodations  are  available.  Should  such  accommoda- 
tions not  be  available,  report  will  be  made  to  the  War  Department  for 
instructions.  In  this  connection  department  commanders  should 
scrutinize  recommendations  for  transfer  to  development  battalions 
with  a  view  to  keeping  such  transfers  at  a  minimum.  In  order 
that  department  commanders  may  do  this  intelligently  a  copy  of 
qualification  and  medical  card  (form  CCP-1)  will  be  sent  with  rec- 
ommendations for  transfers  to  department  Headquarters.  Until 
the  new  qualification  and  medical  card  is  received,  copies  of  form 
CCP-1,  now  being  used,  and  medical  form  88,  or  other  appropriate 
form  describing  the  case,  will  be  sent  with  recommendations  for 
transfer  to  the  development  battalions.  Department  commanders 
will  not  approve  recommendations  for  transfer  to  development  bat- 
talions of  men  who  clearly  should  be  discharged  on  surgeon's  certifi- 
cate of  disability.  Men  who  are  fit  for  limited  service  and  who 
probably  cannot  be  further  developed  will,  as  far  as  possible,  be 
utilized  by  department  commanders  in  non-combatant  organizations 
within  their  respective  departments. 

"9.  Commanding  officers  of  general  hospitals  and  recruit  depots 
are  hereby  authorized  to  transfer  men  from  their  respective  com- 
mands direct  to  the  nearest  development  battalions.  Before  such 
transfers  are  made,  they  will  ascertain,  from  commanders  of  camps 
to  which  it  is  intended  to  send  men,  whether  or  not  accommodations 
are  available  in  development  battalions.  Should  such  accommoda- 


DEVELOPMENT  BATTALIONS  525 

tions  not  be  available,  report  will  be  made  to  tbe  War  Department 
for  instructions. 

"10.  These  instructions  are  intended  to  cover  all  cases  arising 
within  the  continental  limits  of  the  United  States.  This  applies  to 
men  returned  from  abroad  and  to  all  branches  of  the  service.  The 
instructions  contained  herein  also  apply  to  development  battalions 
authorized  for  Porto  Rico.  The  Commanding  General,  American 
Kxpeditionary  Forces  will  issue  such  instructions  as  he  may  deem 
necessary  relative  to  the  disposition  within  his  command  of  men  in 
the  classes  enumerated  in  paragraph  4b  above. 

"11.  Transfers  to  development  battalions  will  be  made  within  the 
grades  held  by  enlisted  men,  unless  transferred  for  disability,  which 
is  the  result  of  their  own  mis-conduct — such  men  should  be  reduced 
to  private  before  transfer.  When  the  number  of  non-commissioned 
officers,  cooks,  etc.,  sent  to  a  development  battalion,  exceeds  the 
number  provided  for  in  Table  400,  Receiving  Battalion,  such  men 
will  be  carried  on  the  rolls  of  the  battalions  as  extra  numbers. 
Men  holding  grades,  such  as  saddler,  horseshoer,  etc.,  not  provided 
for  in  Table  400,  will  also  be  carried  as  extra  number  on  the  rolls 
of  the  battalion  to  which  they  are  assigned. 

"12.  Cases  of  men  whose  disposition  is  not  covered  by  these 
instructions,  will  be  referred  to  the  War  Department  for  necessary 
action. 

"13.  On  the  last  of  each  month,  camp  commanders  will  rennet 
report  on  form  CCP-601  to  the  Adjutant  General  (Room  528).  This 
report  will  be  made  by  Headquarters  for  Development  Battalions 
and  will  be  a  consolidated  report  for  all  development  battalions  in 
the  respective  camps. 

"14.  Camp  Commanders  and  officers  who  are  placed  on  duty  with 
development  battalions  should  bear  in  mind  the  importance  of  this 
work.  Success  in  conserving  the  man  power  of  the  nation  can  be 
obtained  only  through  untiring  effort  and  an  exercise  of  good 
judgment  on  the  part  of  Commanders  who  should  assign,  to  Develop- 
ment Battalions,  officers  who  possess  special  fitness  for  the  duty  to 
be  performed." 

EXTENT  OF  GROWTH  OF  DEVELOPMENT 
BATTALIONS 

The  extent  to  which  these  battalions  had  grown  in  a  short 
time  is  indicated  by  the  attached  summary  reports. 

The  figures  reported  here  are  incomplete  and  do  not  give  a 
full  or  accurate  summary  of  the  actual  conditions  up  to 


526  HISTORY  OF  PERSONNEL 

November  30,  1918.  The  inaccuracy  is  due  to  the  fact  that 
orders  for  demobilization  of  November  15  resulted  in  incom- 
plete reports  in  certain  cases  and  no  reports  at  all  from  four 
camps,  although  repeatedly  called  for. 

They  do,  however,  afford  a  fairly  general  summary  of  the 
situation  and  an  idea  of  the  extent  to  which  the  establish- 
ment of  these  battalions  assisted  in  clearing  or  relieving  divi- 
sions and  depot  brigades  of  men  unfitted  for  full  military 
service. 

An  analysis  of  the  data  which  brings  out  other  interesting 
and  useful  details,  is  attached. 

Development  Battalions. — Consolidated  or  Summary  Report. 
From   Organizations  to  November  30,   1918. 

Total 

Totals  to  account  for  this  report 229,958 

Totals  discharged 36,274 

Totals  deserted 919 

Totals  died 1,358 

Rated  1 38,466 

Rated  2 42,738 

Rated  3 39,468 

All  transfers  out  of  battalions 115,694 

Totals  remaining  in  battalions 89,370 

Development  Battalions. — Summary  of  Various  Types 
Disqualifications. 

(Incomplete  Figures.) 

Total  by  Per  Cent 

Disqualifications  of  Total 

Venereals    77,456  34.4   % 

Foot    conditions 28,823  12.7    % 

Mental     4,798  2.1    % 

Functional  heart  condition 10,917  4.8   % 

All  other  physical 53,540  23.7   % 


DEVELOPMENT  BATTALIONS              527 

Non-English  

Total  by 
Disqualifications  t 
....        15,562 

Per  Cent 
of  Total 
6.8   % 
5.8   % 
0.19% 
0.51% 
0.61% 
2.1    % 
5.9   % 

Illiterates    

....        13,215 

Morally  unfit  

140 

Conscientious    obj  ectors  .  .  . 

1,093 

Draft    evaders  

....           1,196 

Enemy  aliens  

4,623 

Other  aliens  

13,354 

Totals     224,717 


CHAPTER  41 

THE     COMMITTEE     ON     EDUCATION     AND 

SPECIAL  TRAINING  AND  THE  STUDENTS' 

ARMY  TRAINING  CORPS 

THE  HANDLING  OF  SPECIALISTS 

The  Committee  on  Classification  of  Personnel  (CCP)  and 
the  Committee  on  Education  and  Special  Training  (EST) 
were  both  interested  in  providing  the  Army  with  men  of 
special  ability  either  to  work  at  a  trade  or  to  command  other 
men.  Before  the  relation  which  these  committees  sustained  to 
each  other  can  be  clearly  understood  a  brief  introductory 
statement  regarding  the  handling  of  trade  specialists  is 
necessary. 

Beginning  with  the  fall  of  1917  calls  for  men  with  trade 
ability  were  made  by  staff  corps  for  their  technical  units  in 
constantly  increasing  volume.  This  situation  was  critical 
since  (1)  no  adequate  machinery  for  handling  such  calls  or 
allotting  trade  specialists  existed;  (2)  there  were  no  tables 
showing  the  numbers  of  trade  specialists  required  either  for 
individual  units  or  the  entire  Army  as  authorized  in  October, 
1917 — amounting  to  forty  divisions  in  addition  to  units  for 
corps  and  army  troops  and  the  services  of  supply;  and  (3) 
in  addition,  there  existed  no  reliable  figures  on  the  number  of 
each  kind  of  specialist  received  in  each  100,000  of  the  draft. 

In  meeting  these  difficulties,  which  were  of  the  utmost  im- 
portance for  EST,  the  CCP  played  an  important  part. 

Allotment  Machinery.  In  the  fall  of  1917  when  calls  for 
specialists  were  received  by  the  Adjutant  General  they  were 
referred  to  the  CCP  through  Major  (later  Lt.  Col.)  Grenville 
Clark,  who  had  been  assigned  to  the  Committee  as  military 

528 


COMMITTEE  ON  EDUCATION  529 

associate  and  executive  officer  by  Major  General  McCain.  A 
memorandum  recommending  whether  or  not  transfer  of  such 
trade  specialists  should  be  made  and  from  what  point  was 
prepared  and  submitted  by  The  Adjutant  General  to  the  Chief 
of  Staff.  These  recommendations  were  consistently  approved. 
Major  Clark  recommended  in  October,  1917,  that  a  liaison 
officer  from  the  General  Staff  be  appointed  to  act  with  him 
on  allotments,  and  on  The  Adjutant  General's  request  Lt.  Col. 
(later  Brigadier  General)  Robert  I.  Rees  was  assigned.  From 
October,  1917,  to  February,  1918,  calls  for  trade  specialists 
were  handled  in  the  first  instance  by  them  and  from  February 
to  June,  1918,  by  the  Committee  on  Education  and  Special 
Training  of  which  they  were  both  members.  Thereafter  the 
Operations  Division,  represented  by  Lt.  Colonel  Richard  H. 
Kimball,  handled  the  requisitions.  The  men  to  be  trans- 
ferred were  located  throughout  this  entire  period  from  the 
records  kept  by  the  CCP. 

THE   COMMITTEE  ON  EDUCATION  AND   SPECIAL 
TRAINING  AND  PERSONNEL  REQUISITIONS 

The  Committee  on  Education  and  Special  Training,  during 
the  period  named,  handled  requisitions  for  trade  specialists 
as  one  of  its  functions.  Its  membership,  Colonel  (later 
Brigadier  General)  Hugh  S.  Johnson,  Deputy  Provost  Mar- 
shal General, — later  succeeded  by  Lt.  Col.  (later  Colonel) 
John  H.  Wigmore, — Lt.  Col.  (later  Brigadier  General) 
Robert  I.  Rees,  General  Staff,  and  Major  (later  Lt.  Col.) 
Grenville  Clark,  Adjutant  General's  Department,  included 
those  branches  of  the  Army  particularly  interested  in  the 
administration  of  personnel  and  made  quick  action  possible. 

Under  General  Orders  No.  15,  February  10,  1918,  the 
functions  of  The  Committee  on  Education  and  Special  Train- 
ing were  defined. 

"2.  Under  the  direction  of  the  Chief  of  Staff  the  func- 
tions of  the  Committee  shall  be:  to  study  the  needs  of  the 
various  branches  of  the  service  for  skilled  men  and  tech- 


530 HISTORY  OF  PERSONNEL 

nicians;  to  determine  how  such  needs  shall  be  met;  whether 
by  selective  draft,  special  training  in  educational  institu- 
tions or  otherwise;  to  secure  the  co-operation  of  the  educa- 
tional institutions  of  the  country  and  to  represent  the  War 
Department  in  its  relations  with  such  institutions ;  to  admi- 
nister such  plan  of  special  training  in  colleges  and  schools 
as  may  be  adopted. 

"3.  The  Committee  on  Education  and  Special  Training 
shall  have  associated  with  it  an  advisory  civilian  board 
appointed  by  the  Secretary  of  War,  composed  of  represen- 
tatives of  educational  institutions.  An  officer  shall  be 
detailed  by  the  Chief  of  each  Staff  Corps  and  Department 
to  consult  with  the  Committee  concerning  the  needs  of  his 
Corps  or  Department." 

The  EST,  by  a  letter  in  February  to  all  staff  corps, 
regularized  the  procedure  in  filling  requisitions  for  skilled 
personnel  as  follows: 

"The  Committee  will  have  office  room  adjoining  the 
Classification  Committee  and  War  Service  Exchange  of  the 
Adjutant  General's  Office.  By  co-ordinating  the  work  of 
the  Committee  on  Education  and  Special  Training  with 
these  organizations  it  is  the  intention  to  have  a  clearing 
house  for  all  personnel  requirements,  in  order  that  requisi- 
tions of  various  branches  of  the  service  for  men  may  be 
dealt  with  systematically. 

"In  order  to  co-ordinate  the  administration  of  matters 
relating  to  personnel  requirements  the  following  procedure 
will  govern  on  and  after  February  12th: 

(a)  All  requisitions  and  statements  of  needs  relating  to 
enlisted  personnel  will  be  addressed  and  sent  to  "The 
Adjutant  General  of  the  Army,  attention  Room  528,  War 
Department  Building."     (Committee  on  Classification  of 
Personnel.) 

(b)  These  requisitions  will  be  recorded  and  turned  over 
to   the   Committee   on   Education   and   Special   Training 
which,  under  the  direction  of  the  Chief  of    Staff,    will 
determine  how  the  requisition  shall  be  dealt  with,  whether 
by  selective  draft,  special  training  in  educational  institu- 
tions, transfers  of  men  already  in  the  service,  volunteer 
recruiting  or  otherwise. 

(c)  In  determining  how  to  handle  a  particular  case  the 
Committee  will   consult  with  the  representative   of  the 


COMMITTEE  ON  EDUCATION  531 

Staff  Department  concerned;  having  reached  a  decision 
and  obtained  the  approval  of  the  Chief  of  Staff,  the 
matter  will  be  handled  as  follows:  (1)  If  it  be  a  case 
for  selective  draft  the  necessary  steps  will  be  taken  by 
the  Provost  Marshal  General;  (2)  If  it  be  a  case  for 
selection  and  transfer  of  men  already  in  the  service,  the 
necessary  steps  will  be  taken  by  the  Adjutant  General 
and  his  Classification  Committee;  (3)  Cases  involving 
volunteer  recruiting  will  be  handled  by  the  usual  ma- 
chinery of  the  Adjutant  General's  Office;  (4)  Cases  in- 
volving special  training  in  educational  institutions  will 
be  dealt  with  directly  by  the  Committee  on  Education 
and  Special  Training  under  its  authority  to  administer 
such  plan  of  special  training  in  colleges  and  schools  as 
may  be  adopted.  The  same  will  apply  to  special  training 
in  industrial  plants.  (5)  Requisitions  for  individual 
specialists,  for  men  to  fill  civilian  positions  and  cases 
involving  relations  with  the  Department  of  Labor  will 
be  handled  by  the  War  Service  Exchange  of  the  Adju- 
tant General's  Office.  It  is  not  intended,  however,  to 
disturb  arrangements  already  established  by  staff  depart- 
ments for  filling  civilian  positions. 

"All  requisitions  for  men  will  be  set  forth  in  terms  of 
the  index  of  occupations  prepared  by  the  Adjutant  Gen- 
eral's Classification  Committee.  Copy  of  index  is  inclosed. 
Each  requisition  shall  specify  the  number  of  men  wanted 
under  each  head,  giving  the  numeral  and  symbol  according 
to  the  index  of  occupations.  As  above  stated,  all  requisi- 
tions will  be  addressed  and  sent  to  the  Adjutant  General  of 
the  Army,  attention  Room  528." 

TABLES  OF  OCCUPATIONAL  SPECIALISTS  NEEDED 

As  early  as  September,  1917,  the  CCP  began  to  list  the 
needs  of  an  infantry  division  in  terms  of  trade  specialists  or 
occupations.  It  had  likewise  encouraged  and  assisted  the  staff 
corps  in  determining  the  occupational  needs  of  its  units.  With 
its  establishment  the  Committee  on  Education  and  Special 
Training  was  charged  with  forecasting  the  needs  "of  the 
service  for  skilled  men  and  technicians." 

With  the  co-operation  of  the  staff  corps  and  Major  Clark 
for  EST,  Mr.  Alexander  C.  Robinson  III.  of  the  Committee 


532 


HISTORY  OF  PERSONNEL 


prepared  in  February  a  forecast  of  the  needs  for  specialists 
based  on  the  units  included  in  the  six  phases  of  the  army 
organization.  This  showed  a  probable  shortage  in  the  number 
of  skilled  specialists  required.  The  character  of  the  army 
had  changed  in  a  year  so  radically  as  to  demand  thousands 
of  occupational  specialists  where  hundreds  had  sufficed  before. 
A  survey  of  the  following  table  from  the  annual  report  of  the 
Secretary  of  War,  1918,  reveals  the  great  increase  of  tech- 
nical units  in  the  present  army. 

Old  Army,  New  Army, 

March,      November, 

1917.  1918. 

Infantry  and  machine  gun 85,000  974,000 

Engineer    3,000  394,000 

Field  Artillery  and  ammunition  train 9,000  389,000 

Medical    7,000  300,000 

Quartermaster    8,000  228,000 

Coast  Artillery    21,000  137,000 

Ordnance   1,000  64,000 

Signal    3,000  52,000 

Cavalry  '. 22,000  29,000 

Air  Service  0  202,000 

Motor  Transport  0  103,000 

Militia  Bureau 0  27,000 

Chemical  Warfare 0  18,000 

Tank   0  14,000 

In  training   549.000 

All  other   31,000  185,000 

Total 190,000          3,665,000 

The  forecast  of  needs  was  not  accurate;  it  could  not  be, 
since  many  of  the  units  were  new  and  their  proper  balance  of 
skilled  personnel  undetermined.  Only  months  afterwards 
were  adequate  tables  of  occupational  needs  prepared  for  the 
Staff  Corps  when  this  work  was  taken  over  and  pushed  to 
completion  by  the  Committee.  (See  Chapter  14.) 

The  forecast  could  not  be  used  as  an  exact  basis  of  opera- 
tion because  of  another  reason.  The  date  when  the  different 
units  authorized  would  be  organized  was  not  exactly  stated, 


COMMITTEE  ON  EDUCATION 


and  the  program  of  shipping  changed  repeatedly  during  the 
spring  months.  The  great  push  was  to  send  over  infantry 
divisions.  In  consequence  it  was  impossible  to  say  on  Feb- 
ruary 15:  "By  June  1  we  shall  have  to  have  100.000  me- 
chanics organized  as  units  ready  for  shipment,  and  of  these  we 
have  5,000  available  and  65,000  assured  from  the  drafts  up 
to  May  15."  All  that  could  be  said  was:  "We  are  going  to 
need  great  numbers  of  specialists,  and  we  must  get  an  ample 
supply." 

THE  SKILLED  MEN  FURNISHED  BY  THE  DRAFT 

To  determine  the  numbers  of  skilled  men  which  the  Army 
might  expect  to  secure  from  the  draft,  the  Committee  through 
Dr.  Bingham  had  made  an  analysis  of  occupations  received 
in  each  100,000  of  the  draft.  Work  was  begun  on  this  in 
November,  1917.  This  supply,  as  compared  with  the  calls  for 
specialists  and  with  the  projected  tables  of  needs  caused  great 
anxiety.  This  was  intensified  by  reason  of  the  fact  that  indus- 
try would  have  to  keep  many  of  the  specialists  needed  in  the 
Army  if  it  were  to  produce  munitions  and  other  necessary 
supplies. 

By  the  end  of  1917  it  became  apparent  that  the  Army  would 
have  to  undertake  the  program  of  training  to  increase  the 
number  of  skilled  or  semi-skilled  men  needed  for  its  units. 
The  EST  was  authorized  to  administer  the  program  which 
the  studies  of  the  CCP  had  shown  to  be  vital.  It  associated 
with  itself,  therefore,  on  the  advice  and  with  the  assistance 
of  the  Committee  a  Civilian  Advisory  Board  of  Educators. 
The  membership  of  this  board,  of  which  Dr.  Charles  R.  Mann 
W.TS  chairman,  included  Dr.  James  R.  Angell,  member  of  the 
Committee,  and  Mr.  J.  W.  Dietz  and  Mr.  C.  R.  Dooley,  both 
of  whom  were  camp  supervisors  for  the  committee. 

THE   TRAINING  PROGRAM  OF  THE   COMMITTEE 
ON  EDUCATION  AND  SPECIAL  TRAINING 

The  training  functions  of  EST  increasingly  absorbed  the 
attention  of  its  members  and  in  June,  1918,  its  work  of  allot- 


534  HISTORY  OF  PERSONNEL 

ting  skilled  personnel  was  taken  over  by  the  Operations  Divi- 
sion, General  Staff. 

The  need  for  trade  specialists  EST  planned  to  meet  by 
establishing  training  detachments  at  institutions  already 
engaged  in  vocational  or  technical  training.  In  April,  1918, 
contracts  were  made  with  twenty-three  institutions  and  on 
November  11  there  were  124-  training  detachments  (known 
then  as  Section  B,  S.  A.  T.  C.)  A  total  of  142  institutions  had 
units  at  some  time  during  this  period.  The  total  number  of 
men  contracted  for  with  these  vocational  sections  was  143,508. 
The  initial  authorization  for  this  training  was  20,000,  later 
raised  by  80,000  additional  for  the  period  ending  November  1, 
1918.  The  1918  winter  program  authorized  an  additional 
220,000  (20,000  of  this  colored). 

In  their  handling  of  vocational  specialists  the  Committee 
assisted  EST  in  four  ways:  (1)  by  furnishing  estimates  of 
probable  shortages  as  a  guide  in  determining  the  numbers  and 
kinds  of  men  to  be  trained;  (2)  by  assisting  in  procuring 
suitable  men  to  be  trained;  (3)  by  distributing  the  trained 
personnel  from  the  schools;  and  (4)  by  some  supervision  of 
the  classification  work  done  at  Training  Detachment  Units. 

In  none  of  these  activities  were  the  results  completely  satis- 
factory to  the  Committee.  The  shortage  figures  were  given 
as  imperfect  estimates  only,  and  further  information  adequate 
to  check  them  did  not  seem  available  for  use  by  EST.  Be- 
cause of  this  operation  on  problematical  estimates  there  were 
instances  of  groups  of  men  being  trained  in  certain  lines  in 
excess  of  the  need  for  them. 

The  men  secured  for  training  never  gave  complete  satis- 
faction. This  was  due  primarily  to  the  inability  of  the  Com- 
mittee and  EST,  because  of  outside  factors,  to  have  men 
sent  to  Training  Detachments  from  Depot  Brigades.  There 
the  CCP  classification  machinery  would  have  selected  men 
according  to  specifications  and  so  insured  apprentices  in 
trades  going  to  Training  Detachments  of  their  trade.  Where 
such  procedure  was  impossible  men  with  at  least  promising 


535 


potential  ability  might  have  been  sent.  As  it  was,  the  Train- 
ing Detachments  received  men  direct  from  Local  Boards. 
Frequently,  the  selection  was  badly  made,  both  as  to  previous 
trade  experience  and  to  potential  ability.  A  single  quotation 
from  a  report  of  June  26th,  made  by  a  supervisor  is  in  point: 

"Observations  at  Trade  Schools  indicate  that  Draft 
Boards  are  not  always  exercising  good  judgment -in  the 
selection  of  men  inducted  for  training  in  these  schools.  Men 
already  skilled  in  occupations  useful  in  the  Army  are  sent 
to  schools  without  facilities  for  continuation  courses  in  these 
subjects.  The  result  is  that  these  men  are  put  into  courses 
for  which  they  are  unqualified  and  which  they  have  no  de- 
sire to  learn.  This  results  in  much  waste  of  time,  money 
and  good  material,  besides  working  an  injustice  to  the  men 
so  inducted." 

A  partial  remedy  was  found  in  a  small  receiving  and  classi- 
fication post  opened  in  May,  1918,  at  Valparaiso  University, 
Indiana,  where  a  personnel  adjutant  classified  and  trade 
tested  the  men  before  sending  them  to  Training  Detachments. 
Only  a  fraction  of  the  men  needed,  however,  could  be  thus 
supplied. 

The  distribution  of  men  at  the  close  of  their  training  period 
was  unsatisfactory  because  men  had  to  be  removed  from  the 
schools  on  a  set  date,  irrespective  of  the  ability  of  technical 
units  in  the  Army  camps  to  absorb  them  on  that  date.  No 
storage  camp  was  ever  supplied,  and  as  a  consequence  men 
were  sometimes  misplaced  even  after  having  been  trained. 
The  total  number  distributed  by  the  central  distributing  office 
from  the  Training  Detachments  was  89,094-. 

The  classification  work  carried  on  at  some  Training  De- 
tachments was  unsatisfactory  because  of  two  reasons:  men 
were  reported  to  Washington  for  distribution  as  tradesmen 
in  the  trade  taught  at  their  unit,  irrespective  of  the  fact 
that  because  of  the  misplacements  by  Local  Boards  men 
already  fairly  skilled  in  one  trade  might  be  sent  to  a  de- 
tachment teaching,  a  different  trade  and  come  out  of  it  less 
skilled  in  the  new  than  in  the  old  trade.  In  addition  men 


536  HISTORY  OF  PERSONNEL 

were  reported  as  more  highly  skilled  than  their  performance 
warranted.  When  these  men  were  secured  in  technical  Army 
units  considerable  criticism  resulted.  The  Soldiers'  Qualifica- 
tion Cards  (CCP-1)  were  so  imperfectly  made  out  that  in 
August  Training  Detachments  were  instructed  to  discontinue 
making  them  except  for  men  going  directly  overseas.  For 
all  others,  cards  were  made  out  by  the  personnel  system  at 
Army  Camps  receiving  them.  When  Training  Detachments 
became  Section  B  units  in  the  S.  A.  T.  C.  (Oct.  l)  trained 
personnel  adjutants  were  assigned  to  them,  and,  had  the  war 
continued,  the  making  of  the  qualification  cards  would  have 
been  resumed. 

These  difficulties  were  at  least  in  part  inescapable  in  the 
early  months  of  the  war.  Doubtless  they  would  have  been 
overcome  as  the  Army  program  became  stable,  the  numbers 
of  men  needed  were  exactly  predictable,  and  the  personnel 
force  in  the  units  better  trained  and  experienced.  Even  with 
the  imperfections  incident  to  its  operation  the  work  of  EST 
in  the  vocational  sections  accomplished  its  purpose — it  in- 
creased the  number  of  trade  specialists  available  for  the 
Army. 

THE  STUDENTS'  ARMY  TRAINING  CORPS 

In  addition  to  training  technical  specialists  EST  prepared 
and  executed  plans  for  increasing  the  officer  personnel  in 
which  by  June,  1918,  there  was  a  decided  shortage  due  to  the 
unexpected  increase  in  the  size  of  the  Army.  The  plans  in- 
volved bringing  the  colleges  of  the  country  into  the  military 
program  as  posts  for  the  preliminary  training  of  officer 
material.  In  June  the  Students'  Army  Training  Corps  was 
authorized.  College  students  were  to  be  enlisted,  then 
placed  on  furlough  status  and,  as  civilians  without  pay,  re- 
main in  college  for  study  and  military  training.  Three  sum- 
mer camps  for  training  an  instructing  personnel  drawn  from 
college  instructors  and  students  were  opened  July  18th,  and 
ran  for  two  months  with  an  attendance  of  about  8,000. 


COMMITTEE  ON  EDUCATION  537 

The  military  program  was  increased  in  July  to  98  divisions 
arid  the  increased  man-power  bill  changing  the  draft  limits 
to  18  and  45  was  projected.  These  circumstances  caused  a 
recasting  of  the  S.  A.  T.  C.  program;  and  it  was  decided  to 
place  the  college  under  military  control  and  enlist  the  stu- 
dent body  and  continue  them  in  regular  army  status  with 
full  pay.  Twenty-seven  hundred  of  those  in  attendance  at 
the  summer  camps  were  commissioned  and  many  of  these  were 
returned  to  conduct  the  military  training  at  the  colleges. 
About  526  units  were  established  in  October  and  November, 
1918. 

The  Committee  assisted  the  S.  A.  T.  C.  by  training  per- 
sonnel adjutants  for  its  units,  by  devising  a  plan  for  selecting 
and  classifying  officer  material  in  the  units  and  a  plan  for  ad- 
mitting new  soldiers  to  S.  A.  T.  C.  units.  Demobilization 
officers  for  S.  A.  T.  C.  were  also  trained  under  supervision 
of  the  Committee. 

Training  Schools  for  Personnel  Adjutants.  At  a  joint  meet- 
ing of  members  of  the  Committee  and  EST  held  August  30, 
1918,  the  Committee  agreed  to  conduct  training  schools  for 
personnel  adjutants  at  the  three  summer  training  camps.  In- 
structing staffs  were  dispatched  and  Mr.  Kendall  Weisiger, 
Mr.  John  J.  Coss,  and  Mr.  A.  J.  Turner  were  put  in  charge 
of  schools  opening  September  16,  at  Plattsburg,  N.  Y.,  Fort 
Sheridan,  Illinois  and  the  Presidio,  San  Francisco.  These 
supervisors  selected  the  personnel  to  be  trained  and  con- 
ducted an  intensive  eight  day  course.  The  quality  of  the 
personnel  trained  was  notably  high  and  excellent  results  were 
achieved.  All  phases  of  Army  paper  work  as  well  as  the 
personnel  work  proper,  including  classification,  were  covered. 
(See  Chapter  38  for  further  details.) 

The  Thorndike  Rating  Plan.  The  S.  A.  T.  C.  with  its 
125,000  soldiers  was  regarded  as  a  promising  field  for  men  to 
be  sent  to  officers'  training  camps.  Indeed,  up  to  November 
11,  1918,  8,000  officer  candidates  were  transferred  from  S.  A. 
T.  C.  units  Section  A  and  1,144  from  Section  B.  Infantry, 


538  HISTORY  OF  PERSONNEL 

Field  and  Coast  Artillery,  Air  Service  (pilots  and  observers) 
and  certain  branches  of  the  Navy  as  well  were  all  anxious 
to  recruit  from  the  colleges.  The  Committee  through  its  chair- 
man, Dr.  E.  L.  Thorndike,  assisted  by  Dr.  T.  L.  Kelley, 
presented  in  September  and  in  finished  form  in  October  a 
plan  for  selecting  impartially  from  S.  A.  T.  C.  the  men  best 
qualified  for  each  of  these  branches. 

The  details  of  the  plan  in  its  final  form  were  worked  out 
by  Dr.  Kelley  and  a  committee  of  9.  A.  T.  C.  supervisors, 
operating  under  Mr.  A.  C.  Vinal,  Director  of  S.  A.  T.  C. 
Personnel  Methods.  The  plan  is  fully  described  in  Chapter 
XIII,  Volume  II,  (Personnel  Manual).  Briefly,  it  involved 
having  each  branch  of  the  service  desiring  candidates  for 
officer  training  divide  1 00  points  between  seven  qualities  which 
they  required  in  their  officers.  The  entire  student  body  was 
then  to  be  rated  on  these  seven  qualities  and  those  eligible 
fo?  further  consideration  selected.  This  group  would  then 
be  classified  on  the  basis  of  their  independent  ratings  for  the 
branch  of  service  for  which  they  were  best  fitted. 

This  plan  met  with  favor.  It  was  given  a  preliminary  try- 
out  at  the  University  of  Virginia  and  Georgetown  University. 
The  result  being  satisfactory,  it  was  on  the  point  of  being 
installed  when  the  armistice  was  signed.  The  Committee 
had  already  instructed  in  personnel  work  the  S.  A.  T.  C. 
supervisors  charged  with  the  introduction  of  the  system  under 
Mr.  Vinal. 

PROCEDURE  FOR  INDUCTING  MEN  FOR  REPLACE- 
MENTS  INTO  S.  A.  T.  C.  UNITS,  SECTION  A 

Soon  after  October  1,  the  dat»  at  which  S.  A.  T.  C.  Units 
were  established  at  educational  institutions,  vacancies  began  to 
occur  in  the  Units.  Since  contracts  for  a  minimum  number  of 
soldiers  had  been  made  with  the  institutions,  and  since  the 
Army  desired  to  use  them  to  capacity,  it  became  necessary 
to  provide  a  way  of  inducting  new  men  into  the  Units.  The 
regular  college  entrance  requirements  were  not  considered 


COMMITTEE  ON  EDUCATION  539 

suitable,  since  the  S.  A.  T.  C.  training  was  for  Army  needs 
and  many  men  who  could  profit  by  it  would  be  excluded  if 
rigid  educational  requirements  were  prescribed. 

In  October,  Dr.  Thorndike  presented  to  Brigadier  General 
Robert  I.  Rees,  in  charge  of  S.  A.  T.  C.,  a  plan  for  admission, 
the  chief  features  of  which  were  an  intelligence  test  for 
mental  alertness,  and  a  detailed  personal  record  report.  The 
ideas  of  this  plan  appear  in  the  one  finally  adopted  and 
described  in  this  section,  but  the  Thorndike  plan  as  such 
was  not  adopted. 

The  plan  adopted  by  EST  on  November  6,  1918,  in  addi- 
tion to  using  the  general  scheme  of  the  Thorndike  plan,  fol- 
lowed suggestions  made  by  Lieutenant  Colonel  Grenville 
Clark,  Mr.  A.  C.  Vinal,  and  his  associates  in  the  Personnel 
Methods  Division.  (See  Chapter  XIII,  Volume  II,  for  details.) 

The  plan  adopted  was  felt  to  be  absolutely  democratic  and 
to  provide  for  selection  by  merit  only.  It  placed  the  respon- 
sibility for  filling  vacancies  on  each  college,  yet  through  a  dis- 
trict clearance  made  any  surplus  of  one  institution  available 
for  other  Units.  This  decentralized  recruiting  was  rendered 
necessary  because  of  the  ruling  that  men  could  not  be  selected 
and  transferred  from  Depot  Brigades.  This  was  the  plan 
proposed  at  a  joint  meeting  of  the  Committee  and  EST. 

As  a  feature  of  the  plan  involving  selection  of  candidates 
for  S.  A.  T.  C.  at  Depot  Brigades  the  Trade  Test  Division 
of  the  Committee  devised  a  General  Elementary  Trade  Ex- 
amination. Men  successfully  passing  this  examination  would 
be  further  considered  for  transfer  to  the  vocational  (B  Sec- 
tion) units  of  the  S.  A.  T.  C. 

Conclusion.  The  most  important  items  in  the  relation  of 
the  Committee  to  the  Committee  on  Education  and  Special 
Training  were  the  studies  in  the  number  of  specialists  needed 
by  the  Army,  conducted  chiefly  by  Dr.  Bingham,  which  was 
one  of  the  measures  responsible  for  the  creation  of  EST; 
and  the  selection  and  classification  plan  for  officer  candi- 
dates devised  by  Dr.  Thorndike. 


SECTION  XL 
PERSONNEL  WORK  WITH 

COMMISSIONED    OFFICERS 

There  were  5,791  officers  in  the  Army  on  April 
6, 1917.  On  November  11, 1918,  there  were  188,434 
officers.  Early  in  the  period  of  this  rapid  increase, 
it  was  realized  that  a  simple,  convenient  and  com- 
prehensive record  or  register  card  for  each  officer, 
standard  throughout  the  service,  was  needed.  The 
Officers'  Qualification  Card  (CCP-1101)  was  de- 
vised to  answer  this  need.  Before  the  close  of  the 
war,  it  was  installed  in  every  Army  unit  at  home 
and  abroad.  The  card  furnished  commanding 
officers  and  the  War  Department  with  the  informa- 
tion as  to  the  ability,  military  and  civilian,  and  the 
efficiency  of  each  officer  in  the  American  Army.  It 
was  used  in  assigning  the  right  officer  to  the  duty 
requiring  his  peculiar  ability  and  it  provided  a 
means  of  recording  the  rating  which  expressed  his 
superior  officer's  estimate  of  his  usefulness  to  the 
service. 

Chapter  42  describes  the  Officers'  Qualification 
Card  and  explains  how  it  was  used  in  the  Army. 
Chapter  43  presents,  in  a  similar  manner,  The  Offi- 
cers' Rating  Scale. 


CHAPTER  42 

THE  OFFICERS'  QUALIFICATION  CARD 
THE  FIRST  OFFICERS'  QUALIFICATION  CARD 

When  the  pioneer  civilian  personnel  supervisors  went  out 
into  the  camps  in  September,  1917,  to  assist  in  building  a 
system  to  receive  men  from  the  local  boards,  they  introduced 
the  Soldiers'  Qualification  Card.  It  was  a  standard  per- 
sonnel record  card  and  in  some  six  of  the  divisions  command- 
ing officers  insisted  that  it  be  used  to  card  the  officers,  until 
something  better  could  be  devised. 

This  expression  of  need  for  a  recording  system  of  officers 
enlisted  the  cooperation  of  the  Committee,  and  work  was 
begun  on  a  special  qualification  card  for  officers.  As  an  aid 
in  the  construction  of  such  a  card  every  division  commander 
was  requested  to  provide  the  Committee  with  a  sample  of  the 
form  used  for  recording  the  qualifications  and  efficiency  of 
his  officers.  The  first  edition,  which  incorporated  many  of 
these  suggestions,  was  prepared  by  Dr.  James  R.  Angell  and 
came  off  the  press  November  5,  1917.  (It  is  reproduced, 
face  and  reverse,  Figures  21  and  2 la.)  Four  colors  of  tabs 
were  used  on  this  card:  green  and  orange  on  the  top  series 
of  figures  and  blue  and  yellow  on  the  bottom  series.  Thorough 
experience  and  partial  skill  were  indicated  by  the  first  and 
second  of  each  pair,  respectively. 

The  small  card  was  used  at  once  in  a  few  divisions,  who 
were  eager  for  it  although  they  were  told  that  a  new  and  bet- 
ter card  would  soon  be  issued.  A  limited  number  of  small 
cards  were  carried  overseas  with  the  early  divisions.  Some 
of  the  Coast  Defense  Stations  also  used  it.  Indeed,  as  late 


544 


HISTORY  OF  PERSONNEL 


1s 

a 

->4JJ 

e 
r 

| 
C 
I 

~Sf. 

=• 

035 

i 

^ 

5 

i 

.  ;J    %O*v  -v 

«    c 
^ 

z 
« 

« 

3<£> 

° 

=£l                ^ 

i 
i 

i 

C 

^ 

1 

f-*^ 

;v 

1  ti               O 

v 

*•> 
t/5 

i 

-*S 

^ 

j7    ^ 

i 
i 

J 

\~ 

• 

1 

| 

9 

m  1 

"  **                Q 

i 

' 

3 

c 

t( 

3-*       ^* 

Xi 

JQ                , 

Q 

t 

j 

1^. 

^ 
^ 

io^          ^ 

^ 

5 

a 

I 

^ 

** 

»tb         ^ 

0 

4 

[ 

E 

i 

« 

5 

*c 

' 

"•Q                     w         K 

1 

I 
i 

y 

-5        A 

'**£  ^L    u    < 
f2  >r-  "   ^ 

•r|         g    5 

1 

^ 

-. 

: 

* 

-Q 
C 

35  36  37  38  39 
70  71  ; 

Officer 

r  /63  J 

N 

H" 

1] 

\r;               0      S 

•  -i             *      -     S 
<             <       .     ° 

z      ,        T 

fc                          Q        (. 

S     O  * 

IN  WH« 
TECHNICAL  SCH 

3 
L 

I 

1 

'J 

t 

; 
' 

^ 

l- 
<i 

"N 

% 

0 

K 
c 

'- 

S32  §    ^ 

J! 

y      ^f  u  u 
5       sis 

^         8    g 

GRADUATE! 
OLLEGE  OR 

I 

C 
* 

1                      I 
3 

a 

' 

-2     | 

< 
A 

A                    -        => 

1               n      2      0 

°       — 

a 

t 

< 

i 

j 

S^D  *O 
a  K 

00        «          • 

Z 

1               g      o      § 

—       S 

^ 

t 

2 
< 

2 

s 

1 

fN         Jd 

a 

8  3BS^I 

| 

1 

a 
* 

^ 

>t 

-f     « 

O 

171819202122232 
61  62  63  64 
:al  Key  above  will  be  ch< 

,i?  Gin  NT 

I 

ORGANIZATION  jTCC 

T.r_£._  .._  £L 

:/  ..  ILAIJj 

wrrer,  .  "H 

yfy  b  /VTA-  N  H 

<:  ? 

21 
^  i 

2     * 

r  U 

°--^ 

X 

(L 
r 

a 

X 

It 

>~ 

n 

a< 

i: 

^ 
Q 
q. 

' 
_ 

Cl 

">- 

0 

a 

; 

s 

J 

<o      •=      H 
-'"'o  «      r 

^ 

»5§2:^0 

t   H 
o 

1 

t 

SI* 

u 

£    T 

*  cfl  iu 

i    ID      • 

hi  !a 

i 

s 

s 

^ 

| 

JHQO 

•0 

X 

<< 

Or 

j 

i—  1-1             ^ 

If 

""      V   E^il          1*1 

J 

0 

Q 

•^ 

j 

"o 

N 

K         >  -5?  *^|       •JSl 

-">L  ' 

0 

^ 

\ 

u 

r- 

J 

°  ?  "^  j  'ffV 

Ml 

E 

^ 

> 

v 

00                    Uj 

^ 

?  4J         -fciF' 

| 

"< 

<0 

* 

£> 

2^2             >         3 

9 

0 

"< 

•*a      U 

JO 

5   »0        1^ 

^ 

z 

0 

* 

^ 

• 

•n"*          ^ 

Zjj 

**        Q                5J 

i 

^ 

| 

v 

r 

^S        ^ 

Hi 

fe 

§ 

6 

K 

»    2 

"5 
•j 

I| 

:s    i 

2 

i   1      H 

er 

= 

^ 

«        0 

as       < 

J 

*     T 

OFFICERS'  QUALIFICATION  CARD 


545 


j         |                                 \. 

1  Describe  the  enterprise  in  which  you  exercised  greatest  responsibil- 
ity or  leadership  such  as  manager,  superintendent,  captain,  etc.  : 

r/jff  WAKDFN  -IJitirfD  ST»r  fs  to*f*r  5/x  v  tor. 

i 

S, 

i 

t 
r 

i 
< 
V  ' 

2 

:^ 

^> 

r~ 
W 

• 

after,  lhc(;e  at  which  you  are  expert, 
•oon. 

Isa.  SMrrhlifrht  expert 
54.,  Secret  Service  detective 

il      [ 

|»    U~ 
5||l|||Jl|| 

'    « 
i      1             i 

M-O    j 

rt'l  illi!: 

2  2  Stf    h£J  -^i'S 
U  »  f  E-i*  *1  SSI  i- 

1  "«'c  "  E 

'iJH 

^?S    SSSi    SS3SSSS    §§g 

-is                Q 

P   * 

"•  o 

v 

i 

0 

I 

:  had  expehence;  enter  I  vo  check 
f  experience  you  have  l-.ad  ia  that 

Tannery  manager 
Lawyer 

J1  J 

-st  -       S1 

111  Ifsiisi 

jjSSS    SSSzz 

|c                  , 

•1 

i-3      ^|  ! 

iillli 

. 

• 

. 

il 

B 

,C 

1  :-   |                           (§ 

S.  If  you  are  expert  in  any  occupation  not  mentioned  in  these 
columns,  or  if  you  have  had  specialist  training  in  an  Army  School,  enter 

the  fact  here  TTfl  N^htlTff 

0 

-\  V  after  those  occupations  in  whict 
>t  colum.i  tSe  number  of  years  (e-g., 

1  Forester  (See  Timber  ex- 
P"') 

t  -     f^ 

i'|yS(S[r  go-lJI 
53       KS|  "* 

wi         x             <<4.S 

[  I  i|H 

t  *?liifiM! 

i 

!  ! 

u    ! 

.            k.  „ 

o  t! 

^    ?U    *    0 

0 

» 

ts 

~  "  %  ?; 

<-i|                     © 

: 

ID  the  table  below  enter  or 
each  occupation  checked  write  in  th 

1.  Accountant  ... 
S.  Architect  -  

J,.  i  i 

c<<   mnmnuJo 

i,    n,., 

1  «  u\   ft 

^lll 
5SS 

1 

546  HISTORY  OF  PERSONNEL 

as  January,  1919,  some  of  these  cards  were  received  in  Wash- 
ington from  Coast  Defense  Stations  in  the  Philippines. 

SUBSEQUENT  EDITIONS 

The  first  revision,  issued  January  5,  1918,  brought  the 
card  to  a  larger  size  and  revised  the  list  of  occupations  and 
provided  more  space  for  military  qualifications  and  experi- 
ence and  for  recording  the  officers'  ratings.  In  form  and 
general  arrangement,  it  resembled  the  final  edition  of  the 
card  so  much  that  a  casual  observer  might  not  note  the  dif- 
ference. The  last  edition  is  illustrated  (Figure  22)  on  pages 
548  and  550. 

The  chief  differences  between  the  card  of  January  5,  1918, 
and  the  final  form  of  Officers'  Qualification  Card  are:  (1) 
the  transfer  of  the  description  of  the  principal  civilian  oc- 
cupation to  the  face  of  the  card  (effected  third  edition,  Feb- 
ruary 15,  1918)  ;  (2)  the  addition  of  a  space  for  "Present 
Location"  to  the  final  form  and  (3)  the  addition  of  sub- 
classifications  in  the  civilian  qualification  list  and  of  sub-classi- 
fications in  the  military  qualification  list,  as  well  as  the  main 
headings — "Motor  Transport,"  "Military  Aeronautics,"  "Air- 
craft Production,"  and  "Chemical  Warfare,"  with  their  sub- 
classifications.  The  way  in  which  the  civilian  classification 
was  built  up  is  fully  described  in  connection  with  the  Soldiers' 
Qualification  Card  (See  Section  II.)  The  military  classifi- 
cations were  prepared  chiefly  by  the  corps  or  arm  of  the 
service  concerned.  Through  the  enlargement  of  the  military 
classification,  it  was  possible  to  provide  a  single  card  which 
would  satisfy  all  Corps  with  the  exception  of  the  Medical. 
The  importance  of  expanding  the  military  classification  and 
the  space  for  recording  military  experience  was  emphasized 
by  The  War  Plans  Division  of  the  War  College. 

Edition  of  May  Twenty-second.  A  revised  edition  of  the 
qualification  card  was  prepared  at  the  time  General  Orders 
No.  46,  War  Department  1918,  was  published.  This  pres- 
ented two  new  features:  (1)  On  recommendation  of  the  War 


OFFICERS'  QUALIFICATION  CARD          547 

Plans  Division,  supported  by  Brigadier  General  P.  C.  Harris, 
the  card  was  reduced  one-half  inch  in  width  and  printed  on 
stock  that  would  fold.  This  change  made  it  possible  to 
dispatch  the  card  folded  in  a  standard  Army  envelope.  (2) 
The  space  for  recording  the  intelligence  rating  which  had  ap- 
peared on  the  January  5,  and  subsequent  editions  was  omitted, 
because,  on  May  22,  the  use  of  the  intelligence  tests  for 
officers  was  under  consideration. 

Edition  of  October  First.  A  new  edition  was  printed  on 
October  1,  1918,  on  which  the  space  for  recording  intelli- 
gence tests  was  reintroduced  and  space  assigned  for  record- 
ing the  location  of  the  officer  at  the  time  the  card  was  made 
out.  This  card  showed  the  maximum  number  of  sub-classi- 
fications under  military  qualifications  and  continued  the  let- 
ter series  at  the  top  of  the  card,  which  had  been  included  on 
the  March  15  edition  for  the  purpose  of  tabbing  the  military 
qualifications  of  officers.  (This  is  the  form  reproduced  on 
pages  5  18  and  550.  Details  of  filling  out  this  card  and  tabbing 
it  are  given  in  Chapter  XI  of  Volume  II.) 


Introduced  Into  the  Line.  The  cards  of  January  6,  1918, 
were  put  in  use  at  once.  On  January  15,  1918,  a  letter  was 
sent  by  the  Adjutant  General  to  the  commanding  generals  of 
all  divisions.  The  following  paragraphs  are  quoted  from  this 
letter: 

"The  first  general  rating  of  officers  in  your  division,  pur- 
suant to  the  method  stated  in  the  printed  instructions,  will 
be  as  of  February  1,  1918,  and  similar  ratings  will  be  made 
every  three  months  thereafter.  Intermediate  ratings  may  be 
made  if  desired. 

"For  the  sake  of  uniformity,  the  use  of  Officers'  Qualifi- 
cation Cards  and  the  rating  system  in  connection  therewith 
is  made  obligatory  in  all  divisions  in  the  United  States.  It 
is  believed  that  the  use  of  these  cards  will  make  it  pos- 


548 


HISTORY  OF  PERSONNEL 


"8* 


s  -i 


i»l\ 

j    £§ 


-5 


"s    ; 


Scis'^i;-'! 

S^5         5 


IP      * 


^i-i|      M<J^A|£<<|JPSM||MM<|ZU|2S«3|MM 


pli'j 


I 


1 1!  lijj 

Ei'Hi*  n  IrlJl !  :9s§ 


^ 


rs 


-I    ^ 


"'         *  «         =  ^  ''    ='   £ 

aavo  Noixvounvno  " 


OFFICERS'  QUALIFICATION  CARD 


549 


C8 

o 


HJ-i1     o 


550  HISTORY  OF  PERSONNEL 

sible  to  dispense  with  practically  all  other  cards  and  card 
files  relating  to  officers  in  the  divisions. 

"These  cards  will  be  filed  at  Division  Headquarters  and 
their  confidential  character  preserved  by  all  proper  pre- 
cautions. The  system  of  index  tabs  affixed  to  the  cards 
provides  a  simple  method  of  quickly  locating  officers  with 
special  qualifications. 

"It  is  intended  that  this  system  will  provide  the  informa- 
tion for  the  detail  or  transfer  of  officers  to  special  duty  or 
to  other  branches  of  service,  in  accordance  with  their 
qualifications.  It  is  intended  also  that  the  system  shall 
result  in  the  elimination  or  transfer  of  all  officers  in  your 
division  not  fully  competent  for  their  duties  under  active 
service  conditions,  and  it  is  expected  that  the  result  of  the 
rating  of  your  officers  on  this  plan  will  be  the  discharge  or 
transfer  of  a  considerable  percentage  of  the  lowest  rated 
of  your  officers." 

General  Pershing  Requests  Officers  to  Bring  Cards  to 
France.  In  cable  of  March  26,  General  Pershing  requested 
that  all  officers  and  soldiers  should  carry  qualification  cards 
overseas,  and  from  that  time  on  all  officers  were  required  to 
present  qualification  cards  at  ports  of  embarkation  before 
receiving  ship  assignment. 

Report  on  the  Effectiveness  of  the  Card.  The  qualification 
card  and  the  sj^stem  of  rating  officers  had  not  been  adopted 
permanently,  however,  for  all  officers  of  the  Army.  In  order 
to  gauge  the  opinion  of  the  field  on  this  matter,  the  following 
telegram  was  sent  on  April  6,  1918: 

"Reference  letter  this  office  January  15th  relative  to 
classifying  and  rating  of  commissioned  officers,  your  views 
and  recommendations  and  those  of  brigade,  regimental, 
separate  battalion,  and  other  separate  unit  commanders  are 
desired  on  the  following:  1.  Shall  Officers'  Qualification 
Card  be  adopted  permanently  for  line  officers;  2.  If  adopted, 
are  any  modifications  of  former  instructions  recommended; 
3.  Is  the  rating  scale  on  this  form  preferable  to  the  method 
of  reporting  degrees  of  efficiency  employed  in  former 
efficiency  reports  on  officers ;  4.  Is  the  adoption  of  the 
Regular  Army  efficiency  report  (Form  429),  or  National 


OFFICERS'  QUALIFICATION  CARD          551 

Guard  efficiency  report  (Form  429-1)  or  modification  of 
one  of  these  recommended  in  lieu  of  -Officers'  Qualification 
Card  or  of  rating  scale  on  that  card?  Report  should  reach 
this  office  as  soon  as  practicable  and  not  later  than  April 
15th."  "McCain." 

The  replies  to  this  telegram  were  given  most  serious  con- 
sideration, and  on  May  24  the  investigation  was  closed  with 
General  March's  decision  that  both  qualification  card  and 
rating  scale  would  be  adopted.  A  letter  by  Major  General 
McCain,  under  the  date  of  May  25,  sums  up  the  investigation 
as  follows: 

"The  majority  of  all  reports  were  distinctly  favorable  to 
the  retention  of  the  card  and  the  rating  scale.  Many  sug- 
gestions were  offered  for  including  the  card  and  the  scale. 
It  has  been  decided  to  embody  these  changes  in  a  new 
edition." 

General  Orders  No.  46 >  May  26,  1918,  made  the  use  of  the 
qualification  card  and  the  rating  scale  official  for  officers  in 
the  continental  limits  of  the  United  States.  Significant  para- 
graphs are  quoted: 

"All  officers  of  the  Army  below  the  grade  of  brigadier 
general,  on  active  duty  and  serving  within  the  continental 
limits  of  the  United  States,  will  be  classified  and  rated 
according  to  the  rating  scale  method  now  in  use  in  the  case 
of  line  officers  and  in  certain  of  the  staff  corps  and  depart- 
ments. Each  officer  will  fill  out  an  officers'  qualification 
card  and  will  be  rated  according  to  the  rating  scale  on  or 
before  June  30,  1918.  In  case  of  transfer,  whether  within 
the  United  States  or  overseas,  this  card  will  be  rated,  and 
inclosed  in  a  sealed  envelope  or  package.  It  will  accom- 
pany the  officer  and  be  delivered  to  the  commanding  officer 
to  whom  he  reports. 

"Duplicate  officers'  qualification  cards  will  be  made 
before  July  5,  1918,  and  will  be  forwarded  by  the  division, 
department,  district,  post,  camp,  or  other  station  com- 
mander directly  to  the  Adjutant  General  of  the  Army,  ex- 
cept that  duplicate  cards  of  officers  of  staff  corps  and  de- 
partments of  the  National  Guard,  National  Army,  and 
Officers'  Reserve  Corps  will  be  forwarded  to  the  Chief  of 


552 


HISTORY  OF  PERSONNEL 


o^ 


11 

_s  I 


r« 

-s* 

1^ 


*  o 

r* 
"»»i 

SN 

ri 


~»  ^ 


& 

s^ 

:tC. 

-S^i 

^ 

aic1 

"?1- 

— ctr« 
5? 


:^s 
-;{g 

:| 


jijlhji 

a    ,    |    |I!I 

'?     t     |     i'--J     ;."     •-  =  •"-  =  ----• 


i    j    5    i 


lili 


!ii#*  [Ultlil 

•ii=!*W;  !:3 

mi 

iy{iiii|ii^ijji]lj|iii|jiiiii 

:'»  si3=ic5  ucHmfiZEtt^Miaivn    «|LllilSliilliII !|I!lsilIlFIIIf 

I*J    |4<iMlM  oa-^ijiz|<ao|<>iu|       <i     iHUCMiliMMiidlUriiiJ  »|W*cJd*C6l(j  j<J> 
^5i  <       <       j 


:!• 


H'" 


t  i 


I  ijjftl 

iiiMyi? 
f'«jil^i^ 

R2JJ33 

il 

! ,'  y  Si  ] 

illlllte^ 

*  '^ 


Hi 


Il« 

»]l 
«1 

<J 


111 

iij 
I 

i| 

ih 

!hi 


i;j|i|!  >H|!||:||{4j  -||j    |M|j    !!|!!!i|l!H!!||  i|^|  |j|| 

i|li  :M 

u<oob.«    co'3&.5<»«y    IKS^K11    |JiS« 


J          t 


®V5  & 


Ifi  lllfl  Sll  iillllll 


«*'.-.*       a 

«      gavo  Hotivpunvno  . 


Jv 

ss 


cc 


o 


OFFICERS'  QUALIFICATION  CARD          553 

the  staff  corps  or  department  concerned.  The  above  will 
not  apply  where  duplicates  have  been  forwarded  under 
previous  instructions. 

"Applications  for  qualification  record  cards,  tables  of 
occupational  needs,  officers'  qualification  cards,  and  instruc- 
tions for  their  use  will  be  made  to  The  Adjutant  General  of 
the  Army,  Room  528,  War  Department." 

Officers'  Card  Installed  in  Staff  Corps.  Antecedent  to  this 
order,  at  the  request  of  the  chiefs  of  the  different  bureaus, 
the  officers'  qualification  card  and  rating  scale  had  been  intro- 
duced and  its  use  supervised  in  the  Quartermaster  Corps, 
Coast  Artillery  Corps,  Air  Service,  Ordnance  Department, 
and  Tank  Corps.  For  the  Medical  Department,  a  special 
card  with  a  special  medical  qualification  list  was  prepared  and 
the  first  arid  only  edition  printed  on  May  22  (see  Figure  23, 
Page  552,  where  the  face  of  the  card  is  reproduced.  The 
reverse  of  the  card  is  identical  with  the  regular  officers' 
qualification  card). 

The  Card  Ordered  Used  in  the  A.  E.  F.  In  the  American 
Expeditionary  Forces,  qualification  cards  had  been  in  use  soon 
after  the  first  division  reached  France.  General  Orders  No. 
210,  A.  E.  F.,  November  19,  1918,  made  use  of  the  officers' 
qualification  card  and  rating  scale  official  for  the  officers  of 
the  A.  E.  F.  Paragraph  1,  Section  II,  reads  as  follows: 

"All  officers  of  the  A.E.F.  below  the  grade  of  Brigadier 
General  will  be  rated  in  accordance  with  the  provisions  of 
G.  O.  85,  War  Department,  1918,  under  the  Rating  Scale 
system  adopted  by  the  War  Department  and  now  used  by 
the  United  States  Army  within  the  continental  limits  of 
the  United  States.  The  rating  of  officers  will  be  made 
December  15,  1918.  Thereafter  ratings  will  be  made  quar- 
terly, commencing  April  15,  1918." 

The  Card's  Use  Extended  to  the  Army  in  the  Philippine 
Islands,  etc.  On  January  10,  1919,  a  letter  from  the  office  of 
the  Adjutant  General  to  the  commanding  officers  of  the  mili- 
tary forces  outside  of  the  continental  limits  of  the  United 
States  made  official  the  use  of  the  card  and  rating  scale  for 


554 HISTORY  OF  PERSONNEL ^ 

officers  under  their  commands.     This  completed  the  installa- 
tion of  the  system  in  the  Army  of  the  United  States. 

DISPOSITION  OF  OFFICERS'  QUALIFICATION 
CARDS 

The  officers'  qualification  card  was  made  out  in  duplicate 
for  all  officers  outside  the  A.  E.  F.  One  card  was  kept  at 
field  headquarters  and  the  other  was  sent  to  The  Adjutant 
General  or  to  the  chief  of  the  proper  branch  of  the  service 
depending  on  whether  the  officer  was  in  the  line  or  in  a  staff 
corps.  Officers  on  departure  for  the  A.  E.  F.  made  out  an 
extra  card  to  be  forwarded  to  G.  H.  Q.,  A.  E.  F.  One  copy 
remained  in  Washington  and  the  other  accompanied  the  officer 
to  his  field  headquarters  in  France.  All  officers,  line  or  staff, 
had  a  card  at  G.  H.  Q.,  Chaumont,  and  in  addition,  staff 
officers  had  a  card  at  Tours,  in  G.  H.  Q.,  S.  O.  S.  The  file 
at  Chaumont  lacked  cards  for  some  eight  thousand  officers  at 
the  date  of  the  Armistice,  but  the  completion  of  the  file  was 
assured  by  G.  O.,  No.  210,  A.  E.  F. 

Cards  were  carried  by  officers  on  transfer.  The  field  head- 
quarters' copy  was  given,  on  transfer,  in  a  sealed  envelope  to 
each  officer. 

Officers'  qualification  cards  were  listed  among  the  required 
discharge  papers.  After  the  card  had  been  properly  filleH 
out  and  rated  as  of  discharge  date  it  was  transmitted  to  The 
Adjutant  General  of  the  Army. 

THE  USE  OF  THE  OFFICERS'  QUALIFICATION 
CARD 

In  making  clear  the  use  of  the  officers'  qualification  card  it 
is  impossible  to  do  better  than  expand  the  ideas  presented  in 
General  McCain's  letter  of  January  15,  1918,  (see  Page  547). 
He  spoke  of  uniformity,  simplification  of  records  and  card 
files,  location  of  officers  with  special  qualifications,  detail  or 
transfer  of  officers  to  special  duty  or  to  other  branches  of  the 
service  in  accordance  with  their  qualifications,  the  elimination 


OFFICERS'  Q UALIFICA TION  CARD          555 

or  transfer  from  divisions  of  officers  unfit  for  active  service 
conditions  and  the  discharge  or  transfer  of  lowest  rated  offi- 
cers. This  is  an  epitome  of  the  uses  of  the  card;  each  point 
needs  amplification  only. 

Uniformity.  The  card  ensured  that  the  same  critical 
points  of  information  would  always  be  on  record  for  each 
officer  no  matter  where  he  was  stationed.  One  system  only 
need  be  learned,  not  a  new  system  for  each  station.  Officers 
became  as  automatically  familiar  with  the  place  on  the  card 
to  look  for  certain  information  as  New  Englanders  in  locating 
certain  news  items  in  the  "Springfield  Republican"  or  New 
Yorkers  in  the  "New  York  Times."  The  card  listed  the  essen- 
tial items  and  made  them  standard. 

Simplification  of  Records.  Over  and  above  the  correspon- 
dence file  all  needed  records  of  an  officer  could  be  kept  on  one 
8x11  inch  card,  which  could  be  filed  alphabetically  in  a 
standard  cabinet  where  it  could  be  located  instantly. 

In  the  War  Department  it  no  longer  became  necessary  to 
search  correspondence  files  and  inconvenient  records  for 
ordinary  information  about  an  officer.  The  same  data  could 
be  secured  in  one-tenth  the  time  from  the  card.  In  the  field, 
the  commanding  officer  had  information  immediately  at  his 
disposal,  thereby  obviating  much  of  the  necessity  of  personal 
interviews. 

Location  of  Officers  With  Special  Qualifications  Through 
the  Index  Tabs.  The  numbered  and  lettered  spaces  at  the 
top  of  the  card  provided  for  increasing  the  usefulness  of  the 
card  four-hundred-fold.  These  spaces  represented  named 
civilian  or  military  qualifications  and  a  tab  on  a  space  indi- 
cated that  the  officer  represented  by  the  card  possessed  the 
appropriate  named  experience,  civilian  or  military.  The  color 
of  that  tab  indicated  the  degree  of  his  experience  or  skill. 
Through  the  use  of  the  index  tabs  it  was  possible  to  locate  an 
officer  in  any  one  of  68  main  occupations  and  322  sub-occupa- 
tions, not  to  mention  special  abilities  or  occupations  he  him- 
self might  list.  This  one  file  of  cards  gave,  in  a  single  drawer, 


556 HISTORY  OF  PERSONNEL 

over  400  separate  files  by  occupation  or  military  experience. 
The  saving  in  time  and  money  can  readily  be  imagined. 

Detail  or  Transfer  of  Officers  for  Special  Duty.  This 
was  possible  for  any  commanding  officer  with  initiative  and 
knowledge  of  the  army's  needs.  The  use  of  the  cards  for 
detail  for  special  duty  was  limited  by  these  two  factors  only. 
Any  commanding  officer  could  sit  in  his  office,  map  out  the 
officer  assignments  he  had  under  his  control,  list  them  and 
write  opposite  each  the  particular  qualifications  which  each 
post  demanded.  This  picture  completed,  he  could  call  on  the 
officer  in  charge  of  the  cards  for  the  cards  of  men  approxi- 
mating the  requirements  listed.  By  a  study  of  these  cards  he 
would  see  just  what  civilian  experience  and  military  qualifica- 
tions each  of  his  officers  possessed. 

This  preliminary  study  was  particularly  useful  under  two 
sets  of  conditions:  (a)  where  the  commanding  officer  was  new 
at  his  station,  and  (b)  where  the  units  of  his  command  were 
scattered,  e.  g..  coast  defenses,  regiments  on  guard  duty,  etc. 

The  next  step  was  to  bring  the  officer  and  the  job  together. 
This  was  a  simple  matter  if  the  jobs  and  the  men  had  been 
studied  carefully.  In  matching  man  and  job  the  commanding 
officer  might  find  that  he  had  some  jobs  for  which  none  of  his 
officers  were  fitted.  In  this  case  he  would  put  in  a  requisition 
for  an  officer  and  accompany  it  with  a  detailed  statement  of 
qualifications  and  rank  needed.  On  the  other  hand,  the  com- 
manding officer  might  have  found  that  he  had  some  officers  not 
fitted  for  any  of  his  jobs.  In  this  case  his  duty  would  be  to 
study  carefully  the  officer  and  his  qualifications.  This  leads 
us  to  the  next  heading. 

Elimination  or  Transfer  from  Divisions  of  Officers  Unfit 
for  Active  Service  Conditions  and  Discharge  or  Transfer  of 
Lowest  Rated  Officers.  The  commanding  officer,  after  his 
study  of  an  officer  who  was  a  misfit  in  his  own  organization 
might  come  to  a  variety  of  conclusions.  One  might  be:  "He 
is  physically  unfit  for  field  service  but  suited  for  office  duty  in 
Ordnance*  Engineering."  In  this  case  he  would  recommend 


OFFICERS'  Q  UALIFICA  TION  CARD          557 

transfer  and  request  another  officer  with  specified  qualifica- 
tions as  replacement.  Again,  the  commanding  officer  might 
discover  that  the  officer  under  consideration  was  generally  no 
good,  was  rated  43  and  had  no  special  qualifications  which  he 
could  use  if  transferred.  Such  an  officer  would  be  recom- 
mended for  discharge. 

Since  commanding  officers  are  not  always  familiar  with  all 
officer  positions  and  would  like  more  information  both  on  the 
duties  of  some  of  the  less  usual  posts  under  their  command 
and  on  the  duties  in  the  staff  corps,  the  Committee  has 
prepared  for  their  use  Tables  of  Commissioned  Personnel 
Specifications  which  will  state  both  the  qualifications  required 
and  the  duties  to  be  performed  by  each  officer  in  the  army 
(see  Chapter  17).  The  task  is  one  of  considerable  mag- 
nitude but  a  start  has  been  made  in  the  right  direction. 

Use  of  Officers'  Qualification  Cards  by  Personnel  Boards. 
General  Orders  No.  78,  August  22,  1918,  provided  for  a  per- 
sonnel Board  to  recommend  to  unit  commanders  details, 
assignments  and  appointments  of  officers  based  on  fitness  with- 
out regard  to  seniority.  General  Orders  No.  85,  September 
12,  1918,  further  provided  that  these  Boards  should  take 
action  on  all  officers  whose  ratings  might  fall  below  45,  and 
should  recommend  for  such  probation,  transfer  or  discharge. 

In  the  operations  of  these  Boards  the  same  use  of  the  cards 
would  be  made  as  described  above  for  the  commanding  officer. 

Use  of  the  Cards  in  Selecting  Officers  for  the  Regular  Army 
and  the  Reserve  Corps.  A  complete  file  of  all  officers  dis- 
charged from  the  service  is  kept  in  the  office  of  The  Adjutant 
General  of  the  Army.  When  application  is  made  for  com- 
mission in  the  Regular  Army  or  the  Reserve  Corps,  details 
regarding  each  officer  discharged,  both  as  to  experience  and 
rating  are  at  once  available.  After  the  proper  number  of 
officers  of  each  rank  and  qualification  has  been  determined  in 
order  to  provide  a  well  balanced  commissioned  personnel  (Reg- 
ular or  Reserve)  for  the  Army,  it  is  a  simple  matter,  from 


558  HISTORY  OF  PERSONNEL 

a  study  of  the  cards,  to  determine  which  of  the  officers  mak- 
ing application  should  be  chosen. 

In  the  event  of  hostilities  it  would  be  possible  to  call, 
from  a  study  of  the  cards,  just  the  officers  needed  because 
of  special  qualifications.  Geographical  location  and  any  com- 
bination of  ability  would  be  susceptible  of  instant  determina- 
tion. In  peace  as  in  war  the  Officers'  Qualification  Card  is 
an  effective  method  of  handling  large  numbers  of  commis- 
sioned personnel.  With  it  there  must  always  be  associated  a 
very  thorough  knowledge  of  the  specifications  and  qualifica- 
tions for  the  commissioned  personnel  to  satisfy  the  Army's 
needs: 


CHAPTER  43 

THE  DEVELOPMENT  AND  USE  OF  THE  RATING 

SCALE 

The  rating  scale  by  which  all  officers  in  the  Army  are  rated 
quarterly,  was  devised  and  introduced  into  the  Army  by 
Colonel  Walter  Dill  Scott.  Major  General  H.  P.  McCain, 
Third  Assistant  Secretary  of  War  F.  P.  Keppel,  and  Lieuten- 
ant Colonel  Grenville  Clark  made  possible  its  trial,  and  the 
collective  approval  of  the  officers  of  the  Regular  Army  was 
responsible  for  its  final  acceptance.  It  is  a  systematized  ap- 
plication of  an  old  principle  long  in  use  in  the  Army;  its 
basis  is  the  determination  of  the  relative  excellence  of  men 
by  comparing  them  in  turn  with  men  whose  ability  is 
thoroughly  known;  its  chief  innovation  is  that  the  comparison 
is  made  on  a  series  of  qualities  taken  one  at  a  time,  and  not 
in  terms  of  a  general  comparison. 

The  history  of  the  development  and  trial  of  the  scale  is 
identical  with  the  history  of  the  rise  of  the  Committee,  and 
is  fully  described  in  Chapter  4  of  this  volume. 

USE  OF  THE  RATING  SCALE  IN  TRAINING  CAMPS 

It  is  enough  to  state  here  that  the  scale  was  viewed  with  in- 
terest when  presented,  in  July,  1917,  to  Major  General  Mc- 
Cain and  Brigadier  General  E.  F.  Ladd.  They  considered 
that  it  might  be  a  method  of  selecting  officers  on  an  achieve- 
ment rather  than  a  seniority  basis.  This  problem  of  selection 
was  giving  the  War  Department  much  concern  at  the  time. 
It  was  decided,  therefore,  that  this  new  plan  should  be  given 
a  trial  in  the  Training  Camps  for  Officers,  and  Dr.  Scott 
was  accordingly  authorized  to  present  the  scale  at  the  train- 
ing centres.  A  trial  at  Fort  Myer  was  arranged  and  the 

559 


560 HISTORY  OF  PERSONNEL 

scale  was  presented  and  approved  there  on  July  12th.  The 
scale  at  this  time  was  presented  as  useful  in  selecting  those 
candidates  in  the  Reserve  Officers'  Training  Camps  who  should 
be  commissioned.  The  first  series  of  training  camps  which 
began  May  15th,  and  closed  August  15th,  was  in  progress  at 
the  time.  From  Fort  Myer,  Dr.  Scott  went  to  present  and 
try  the  scale  at  Plattsburg,  where  he  met  officers  from  Madi- 
son Barracks  and  Fort  Niagara  then  to  Fort  Benj.  Harrison, 
and  on  to  Fort  Sheridan,  Illinois,  where  he  met  officers  from 
Fort  Riley  and  Fort  Snelling.  He  was  back  in  Washington 
on  July  27th,  with  a  favorable  report  from  each  camp.  The 
consensus  of  opinion  was  that  the  plan  should  be  used  in  all 
the  camps  of  the  second  series  and  in  as  many  of  the  camps 
of  the  first  series  as  could  get  the  necessary  machinery  going. 
Work  was  begun  on  forms  for  the  second  series.  With  the 
approval  of  the  Secretary  of  War  through  the  formation  of  the 
Committee  on  Classification  of  Personnel  in  the  Army,  the 
work  was  completed  and  the  method  regularly  introduced  into 
the  Officers'  Training  Camps. 

Work  in  the  .First  Series  R.  0.  T.  C.  Officers  in  eight  of 
the  Reserve  Officers'  Training  Camps,  first  series,  made  some 
use  of  the  introductory  rating  sheets  for  candidates  in  selecting 
men  to  be  recommended  for  commissions.  The  rating  scale, 
however,  was  not  the  only  measure  of  fitness  used;  records  for 
the  entire  period  of  training  played  an  important  part. 

Work  in  the  Second  Series  R.  0.  T.  C.  The  second  series 
of  R.  O.  T.  C.  opened  August  27th,  in  sixteen  camps.  For 
this  series,  the  Committee  provided  three  forms:  Al,  "In- 
structions for  Use  of  the  Rating  Scale;"  A2,  "Permanent 
Record"  (record  for  use  in  Camp  Adjutant's  Office),  and  A3, 
"Pocket  Rating  Card."  The  points  worthy  of  special  note 
are  these:  (1)  Provision  was  made  for  using  the  rating  scale 
during  the  school.  For  final  rating  and  for  arranging  the 
candidates  in  order  of  excellence  by  serial  arrangement  in 
final  ratings,  the  permanent  record  (A2)  gave  the  critical 
elements  later  included  in  the  soldiers'  and  officers'  qualifica- 


DEVELOPMENT  OF  RATING  SCALE         561 

tion  cards.  (2)  The  use  of  these  forms  was  not  supervised, 
but  they  were  regarded  by  the  officers  of  the  training  camps 
as  of  very  genuine  assistance. 

Work  in  the  Third  Series — 0.  T.  S.:  The  use  of  the  scale 
entered  a  new  phase  with  the  third  series  of  camps  opening 
January  5,  1918,  and  running  until  April  1.  In  addition  to 
the  use  in  rating  candidates  during  and  at  the  end  of  their 
course,  it  was  used  to  select  soldiers  to  be  sent  from  divisions 
to  the  third  series.  Details  of  this  procedure  have  already 
been  presented  in  Chapter  26.  In  the  third  series,  the 
soldier's  qualification  card  took  the  place  of  the  permanent 
record  sheet  used  in  the  second  series. 

Work  in  the  Fourth  Series  0.  T.  S. :  For  the  fourth  series 
of  O.  T.  S.,  which  began  May  15th,  in  twenty-four  National 
Army  and  National  Guard  Divisions,  the  same  methods  were 
used:  (1)  Candidates  for  the  schools  were  selected  by  the 
Officer's  Rating  Scale  and  were  listed  in  order  of  merit.  (2) 
While  in  training,  students  were  rated  and  the  revised  report 
was  kept  on  the  pocket  card.  In  addition  since  candidates 
for  commissions  were  sent  to  the  fourth  series  from  authorized 
R.  O.  T.  C.  units  at  educational  institutions,  instructions  to 
guide  the  professors  of  military  science  and  tactics  at  these 
institutions  were  prepared  by  the  Committee  and  sent  by  The 
Adjutant  General  in  a  letter  of  April  15th.  These  select- 
ing officers  rated  the  eligible  R.  O.  T.  C.  students  and 
recorded  the  men  selected  in  order  of  merit  (Form  CCP-203 
M.  I.)  according  to  instructions  given  them  in  a  descriptive 
circular  of  the  requirements  of  the  fourth  series  (Form  CCP- 
207.)  Qualified  civilians  made  application  for  the  fourth 
series  through  the  professors  of  military  science  and  tactics  at 
R.  O.  T.  C.  institutions  and  were  rated  by  the  scale,  as  all 
other  candidates.  (See  Chapter  26  for  further  details.) 

Central  Officers  Training  Schools:  The  fourth  series  of 
schools,  each  attached  to  a  division,  were  much  disturbed  by 
division  movements  and  the  candidates  at  these  camps  were 
finally  transferred  to  three  Central  Officers'  Training  Schools 


562  HISTORY  OF  PERSONNEL 

for  Infantry;  one  for  Machine  Guns,  two  for  Field  Artillery, 
and  one  for  Engineers.  For  the  Central  Schools,  a  special 
form  explaining  the  rating  scale  and  its  use  for  rating  candi- 
dates for  commission  was  prepared.  To  make  the  work  more 
uniform,  the  method  was  discussed  with  the  commanding  offi- 
cers of  the  infantry  schools  at  a  conference  in  Washington 
and  it  was  decided  that  the  rating  by  the  rating  scale 
should  count  one  point  and  the  military  record,  during  the 
school,  one  point.  Conferences  were  also  held  with  the  com- 
manding officers  in  the  Machine  Gun,  Field  Artillery  and 
Engineer  Training  Schools,  and  the  plan  was  adopted  of 
counting  one  point  for  the  rating  scale  and  two  points  for  the 
grades  on  the  topics  of  instruction.  At  the  time  of  the  armis- 
tice, the  Central  Officers'  Training  Schools  were  using  the 
scale  for  rating  candidates  and,  according  to  the  prearranged 
plans,  were  supplementing  it  by  the  detailed  records  which 
were  kept  for  each  exercise  or  day  or  week. 

Use  of  the  Scale  at  Quartermaster  Officers'  Training  School: 
The  Quartermaster  training  and  mobilization  centre,  Camp 
Joseph  E.  Johnston,  was  training  officer  candidates  and  re- 
serve officers  and  in  August,  1917,  was  in  need  of  a  record  and 
rating  system.  A  system  modeled  on  that  devised  for  the 
second  series  of  R.  O.  T.  C.  was  prepared  and  introduced 
early  in  September.  The  system  was  explained  in  Circular 
Q.  M.  G.,  Special  Form  G.  and  H.,  authorized  August  31, 
1917,  and  the  record  was  kept  on  a  large  8x16  card  folded  into 
four  parts,  to  conform  to  the  size  of  the  Service  Record.  This 
form  called  for  the  information  given  on  the  permanent  record 
and  added  a  section,  which  was  the  earliest  form  of  the  Index 
of  Occupations. 

This  card  also  carried  space  for  recording  grades  in  prac- 
tical and  theoretical  work  in  administration,  repair  and  con- 
struction, accounting  and  finance,  supply  and  transportation 
(Maximum  total  score — 50),  and  for  recording  ratings  on 
the  scale  (Maximum  total  score — 50.)  The  scale  had  certain 
peculiarities  of  definition  and  score  worthy  of  note. 


DEVELOPMENT  OF  RATING  SCALE         563 

1.  Adaptability:    Ease    of   learning,    capacity    to    apply 
knowledge  and  ability  to  grasp  readily  and  to  solve  new 
problems.    (Maximum  score — 10.) 

2.  Judgment:     In    addition   to   native   intelligence,   con- 
sider the  ability  to  arrive  quickly  at  a  sensible  decision  in 
any  problem  or  situation.    (Maximum  score — 10.) 

3.  Habits:  Consider  reliability,  loyalty,  punctuality,  sub- 
ordination, thoroughness,  industry,  disposition,  and  a  spirit 
of  service  and  general  helpfulness.     (Maximum  score — 10.) 

4.  Leadership:     Consider  self-reliance,  general  bearing, 
initiative,  and  decisiveness,  and  the  ability  to  command  the 
obedience,   loyalty    and   cooperation   of   men.      (Maximum 
score — 10.) 

5.  Value  to  the  Service:  Consider  ability  to  plan  tasks 
and  affairs  to  superintend  work  with  dispatch  and  lack  of 
confusion,   tact  in   dealing  with   others,  general   efficiency 
and  personality.     (Maximum  score — 10.) 

For  each  of  these  qualifications,  each  instructor  gave  a 
rating,  an  average  was  struck  for  each  qualification  and  the 
sum  of  the  averages  taken  for  the  final  score.  To  complete 
the  system,  a  class-room  grade  book  was  provided.  This 
system  was  in  use  until  the  personnel  methods  in  use  at 
Camp  Joseph  E.  Johnston  were  revised  in  March,  1918. 

USE  OF  THE  SCALE  TO  RATE  OFFICERS 

The  use  of  the  scale  as  described  up  to  this  point  has 
been  confined  to  candidates  for  a  commission.  The  wider  use 
of  the  scale  to  apply  also  to  officers  after  their  commission- 
ing, and  to  indicate  their  efficiency,  is  the  subject  of  this 
section.  In  the  R.  O.  T.  C.,  officers  using  the  scale  to  rate 
candidates  frequently  applied  it  in  measuring  their  fellow 
officers.  Division  commanders  here  and  there  used  it  and 
found  it  valuable. 

A  trial  of  the  scale  was  made  on  the  officers  of  the  80th 
Division  at  Camp  Lee,  under  Major  General  A.  Cronkhite. 
Under  date  of  November  10th,  1917,  he  reported  to  The 
Adjutant  General  that  the  trial  of  the  rating  scale  and 
psychological  ratings,  which  were  also  used  at  Camp  Lee, 


564  HISTORY  OF  PERSONNEL   

had  convinced  him  of  their  utility.  He  stated  that  a  system 
combining  the  two  "should  be  continued  in  this  division/'  and 
that  he  believed  the  system  if  applied  elsewhere  would  obtain 
results  of  equal  value.  He  stated  further: 

"The  value  of  the  practical  rating  of  Mr.  Scott  and  his 
associates  is  shown  in  the  most  marked  manner,  in  the  re- 
sults attained  in  the  various  training  camps,  in  conjunction 
with  the  psychological  tests  of  Major  Yerkes,  and  his 
associates,  as  a  result  of  which  the  ability  curves  resulting 
from  the  psychological  examination,  and  the  practical  rat- 
ings of  Mr.  Scott,  accord  almost  absolutely  in  their  re- 
sults ;  and  in  so  far  as  they  concern  the  enlisted  personnel, 
also  subjected  to  psychological  examinations  and  partial 
practical  judgment,  apply  equally  well  to  the  enlisted  per- 
sonnel. 

"It  is  my  order  that  the  practical  rating  of  Mr.  Scott, 
and  his  associates,  shall  be  immediately  applied  to  all  en- 
listed men  in  this  command,  who  may  possess  an  apparent 
ability  which  will  make  them  possible  candidates  for  com- 
missions. 

"Attention  is  particularly  invited  to  the  fact  that,  where- 
as, these  schemes  of  judgment  are  intended  to  do  absolute 
justice  to  .all  officers  and  enlisted  men  who  are  entitled  to 
advancement,  they  specifically  insure  the  fact  that  no  officer, 
or  enlisted  man,  will  be  recommended  for  promotion  who  is 
not  thoroughly  qualified  for  advancement,  and  that,  there- 
fore, full  justice  must  be  done  to  the  service  and  to  the 
country  through  the  appointment  of  men  who  are  qualified 
for  duties  which  they  are  to  assume." 

Following  this  favorable  report,  it  was  decided  to  widen 
the  use  of  the  scale  for  rating  officers.  In  a  letter  of  January 
15th,  1918,  The  Adjutant  General  extended  the  use  of  the 
scale  to  all  divisions  in  the  United  States.  (For  letter,  see 
page  OL.)  To  insure  a  satisfactory  use  of  the  scale,  an  in- 
structor trained  in  the  use  and  presentation  of  the  scale  was 
sent  to  each  division.  Under  their  guidance,  the  scale  was 
used  with  fair  results.  For  this  rating,,  Form  CCP-1102, 
January  5,  1918,  was  issued.  The  last  revision  of  this  form 
(January  1,  1919),  is  reproduced  here. 


DEVELOPMENT  OF  RATING  SCALE         565 

WAR  DEPARTMENT 
INSTRUCTIONS  FOR  RATING  COMMISSIONED  OFFICERS 

"Significance  of  the  Rating  Scale.  1.  Under  General  Orders  46 
and  85  (W.  D.,  1918),  all  officers  in  the  Army  below  the  rank  of 
Brigadier  General  will  be  rated  quarterly  according  to  the  Officers' 
Rating  Scale.  Circular  No.  73  (W.  D.,  1918),  provides  that  a  final 
rating  will  be  given  each  officer  just  prior  to  separation  from  the 
service.  The  rating  of  an  officer  is  a  numerical  expression  of  the 
degree  in  which  he  possesses  the  five  essential  qualifications  of  an 
officer;  namely,  (1)  Physical  Qualities,  (2)  Intelligence,  (3)  Leader- 
ship, (4)  Personal  Qualities,  and  (5)  General  Value  to  the  Service. 
The  rating  is  made  by  comparing  him  in  each  of  these  respects  with 
officers  of  the  next  higher  rank. 

"2.  Promotions,  discharges  and  subsequent  appointments  are  deter- 
mined as  a  rule  by  ratings.  Making  just  and  accurate  ratings  is 
therefore  one  of  the  most  serious  duties  of  an  officer.  Proper  rating 
is  largely  dependent  on  the  possession  of  an  accurate  Rating  Scale. 
Each  rating  officer  makes  his  own  scale,  using  the  reverse  of  this 
Form. 

"How  to  Make  the  Scale.  3.  Write  on  small  slips  of  paper  the 
names  of  from  twelve  to  twenty-five  officers  of  your  own  rank  and 
not  above  the  average  age  of  that  rank.  They  should  be  men  with 
whom  you  have  served  or  with  whom  you  are  well  acquainted  In- 
clude officers  whose  qualifications  are  extremely  poor  as  well  as 
those  who  are  highly  efficient.  If  these  names  do  not  include  all 
the  grades  for  each  of  the  five  qualifications,  others  may  be  added. 

"4.  Look  over  your  names  from  the  viewpoint  of  Physical  Qualities 
only.  Disregard  every  other  characteristic  of  each  officer  except  the 
way  in  which  he  impresses  his  men  by  his  physique,  bearing,  neat- 
ness, voice,  energy,  and  endurance.  Arrange  the  names  on  the  slips 
of  paper  in  order  from  highest  to  lowest  on  the  basis  of  the  physical 
qualities  of  the  men.  Select  that  officer  who  surpasses  all  the  others 
in  this  qualification  and  enter  his  name  on  the  line  marked  Highest 
under  Physical  Qualities.  Then  select  the  one  who  most  conspicu- 
ously lacks  these  qualities  and  enter  his  name  on  the  line  marked 
Lowest.  Select  the  officer  who  seems  about  half  way  between  the 
two  previously  selected  and  who  represents  about  the  general  average 
in  physical  qualities;  enter  his  name  on  the  line  marked  Middle. 
Select  the  officer  who  is  half  way  between  Middle  and  Highest; 
enter  his  name  on  the  line  marked  High.  Select  the  one  who  ranks 
half  way  between  Middle  and  Lowest;  enter  his  name  on  the  line 
marked  Low. 

"5.  In  the  same  manner  make  out  scales  for  each  of  the  other 


566  HISTORY  OF  PERSONNEL 

four  qualifications  (Intelligence,  Leadership,  Personal  Qualities  and 
General  Value  to  the  Service). 

"6.  Each  officer  whose  name  appears  on  the  Scale  should  be 
one  who  exhibits  clearly  and  distinctly  the  qualification  and  the 
degree  of  the  qualification  for  which  he  has  been  chosen. 

"7.  The  names  for  Highest  and  Lowest  on  each  section  of  the 
Scale  must  represent  extreme  cases.  The  name  for  the  Middle 
should  be  that  of  an  average  officer,  half  way  between  extremes. 
High  and  Low  should  be  half  way  between  the  Middle  and  the 
extremes.  An  even  gradation  of  merit  is  important. 

"8.  In  making  or  using  any  section  of  the  Scale,  consider  only 
the  qualification  it  covers,  totally  disregarding  all  the  others. 

"9.  In  rating  subordinates  of  more  than  one  grade,  the  best  prac- 
tice is  to  make  separate  scales  for  each  grade,  using  always  the 
names  of  officers  one  grade  higher  than  that  of  the  subordinate 
to  be  rated.  However,  in  exceptional  cases  good  results  have 
been  secured  where  a  Scale  constructed  of  captains  is  used  for  rating 
both  lieutenants  and  captains,  and  a  Scale  constructed  of  colonels  is 
used  for  rating  all  ranks  of  field  officers. 

"How  to  Use  the  Scale.  10.  Rate  your  subordinate  for  Physical 
Qualities  first.  Consider  how  he  impresses  his  men  by  his  physique, 
bearing,  neatness,  voice,  energy  and  endurance.  Compare  him  with 
each  of  the  five  officers  in  Section  I  of  your  Rating  Scale,  and  give 
him  the  number  of  points  following  the  name  of  the  officer  he  most 
nearly  equals.  If  he  falls  between  two  officers  in  the  Scale,  give 
him  a  number  accordingly  (e.  g.,  if  between  Low  and  Middle,  give 
him  7,  71/0  or  8.) 

"11.  Rate  the  subordinate  in  a  corresponding  manner  for  each  of 
the  other  four  essential  qualifications.  Under  III  (Leadership)  and 
V  (General  Value  to  the  Service),  consider  which  officer  he  will 
most  nearly  equal  after  equivalent  experience. 

"12.  In  rating,  make  a  man-to-man  comparison  of  the  subordi- 
nate with  the  officers  whose  names  appear  on  your  Scale — never  in 
terms  of  numbers  directly.  Disregard  the  numerical  equivalent 
until  you  have  made  these  concrete  comparisons. 

"13.  When  rating  several  subordinates,  rate  all  of  them  on  each 
qualification  before  adding  the  total  for  any  one. 

"14.  This  is  not  a  percentage  system  and  you  should  not  allow 
yourself  to  fix  in  mind  any  particular  number  of  points  you  think 
the  subordinate  ought  to  get. 

"15.  The  total  rating  for  a  subordinate  is  the  sum  of  the  ratings 
you  give  him  in  the  five  separate  qualities.  If  directions  are  fol- 
lowed carefully,  the  average  of  any  considerable  group  of  officers 


DEVELOPMENT  OF  RATING  SCALE         567 

rated  is  about  sixty  points.  In  other  words,  sixty  points  for  a 
lieutenant  means  that  a  captain  has  compared  him  with  the  captains 
he  knows  and  certifies  that  after  equivalent  experience  he  will  be 
equal  to  an  average  captain. 

"16.  Each  officer  below  the  rank  of  Brigadier  General  will  be 
rated  by  his  immediate  superior.  Ratings  will  be  revised  or  approved 
by  the  immediate  superior  of  the  officer  making  the  rating. 
The  revising  officer  will  use  his  own  scale  and  make  ratings  inde- 
pendently of  those  made  by  the  rating  officer.  Superior  officers 
will  see  that  their  subordinates  make  all  ratings  according  to  the 
Rating  Scale  system,  in  order  that  a  just  and  equitable  record  may 
be  had  for  all  officers  in  the  Army." 

I.  Physical  Qualities 

I  Physique,  bearing,  neatness,  voice,  energy  and  endurance.     (Con- 
/  sider  how  he  impresses  his  men  in  the  above  respects.) 

/  Highest   15 

igh 12 

[iddle  9 

Low 6 

Lowest 3 

II.  Intelligence 

Accuracy,  ease  in  learning,  ability  to  grasp  quickly  thepoint  of 
view  of  commanding  officer,  to  issue  clear  and  intelligent  orders, 
to  estimate  a  new  situation,  and  to  arrive  at  a  sensible  decision  in  a 
crisis. 

Highest 15 

High  12 

Middle  9 

Low    6 

Lowest 3 

III.  Leadership 

Initiative,  force,  self  reliance,  decisiveness,  tact,  ability  to  inspire 
men  and  to  command  their  obedience,  loyalty  and  co-operation. 

Highest 15 

J  High  12 

^  Middle 9 

Low    6 

Lowest  3 

IV.  Personal  Qualities 

Industry,  dependability,  loyalty,  readiness  to  shoulder  responsi- 
bility for  his  own  acts,  freedom  from  conceit  and  selfishness,  readi- 
ness and  ability  to  co-operate. 


568  HISTORY  OF  PERSONNEL 

Highest   15 

High 12 

Middle  9 

Low    6 

Lowest  3 

V.  General  Value  to  the  Service 

His  professional  knowledge,  skill  and  experience;  success  as  an 
administrator  and  instructor;  ability  to  get  results. 

Highest   40 

High 32 

Middle   24 

Low    16 

Lowest 8 

The  Use  of  the  Rating  Scale  in  Certain  of  the  Staff  Corps 
Before  May  26,  191S:  The  acting  Quartermaster  General, 
Major  General  George  W.  Goethals,  under  Circular  VII, 
February  18,  1918,  adopted  the  scale  as  the  official  rating  sys- 
tem for  the  Quartermaster  Corps. 

The  same  action  was  taken  for  the  Aviation  Section  of  the 
Signal  Corps,  under  date  of  March  26th,  by  Lieutenant 
Colonel  W.  E.  Gillmore  (Form  CCP-1102— S.  C.)  For  this 
Corps  a  special  rating  was  worked  out  for  pilots  and  ob- 
servers, as  reproduced  below: 

/.  Special  Ability  as  a  Pilot. 

Aggressiveness,  alertness,  coolness,  dependability, 
keenness  of  observation,  and  skill  in  handling  an  air- 
plane and  machine  gun  in  action. 

Highest 100 

High    80 

Middle    60 

Low 40 

Lowest   20 

77.  Special  Ability  as  an  Observer. 

Aggressiveness,  alertness,  coolness,  dependability, 
keenness  of  observation  and  skill  in  mapping  and  in 
directing  artillery  fire. 


DEVELOPMENT  OF  RATING  SCALE         569 

Highest 100 

High    80 

Middle   60 

Low   40 

Lowest   20 

The  Coast  Artillery  Crops,  Ordnance  Department,  Tank 
Corps,  and  Medical  Department  adopted  the  same  course,  so 
that  by  the  time  General  Orders  No.  46  was  issued  the  scale 
had  been  widely  introduced. 

The  Scale  Ordered  for  All  Officers  in  the  United  State's: 
General  Orders  No.  46,  War  Department,  1918,  (See  Page 
OG)  Ordered  the  use  of  the  scale  for  all  officers  in  the 
United  States  below  the  rank  of  Brigadier  General.  They 
were  to  be  rated  by  their  superiors,  as  of  June  30,  1918. 
This  wide  use  of  the  scale  was  in  accordance  with  the  desire 
of  General  March — that  it  be  given  a  thorough  trial.  (In- 
struction was  given  in  many  of  the  camps  in  the  United 
States  by  committee  representatives  before  the  June  ratings 
were  made.) 

The  Final  Adoption  and  Regularization  of  Officers'  Ratings: 
General  Orders  No.  85,  War  Department,  1918,  made  the 
rating  of  officers  by  the  rating  scale  compulsory  and  set  the 
dates  of  rating  for  every  three  months,  beginning  October 
16,  1918.  For  the  October  ratings,  instructions  were  given 
at  nearly  all  camps  and  larger  stations  East  of  the  Rocky 
Mountains.  The  October  ratings  showed  such  marked  im- 
provement that  for  the  January  series  no  special  instructions 
were  given. 

The  Rating  Scale  Abroad:  The  rating  scale  was  used 
sporadically  overseas  before  General  Orders  No.  210  A.  E.  F. 
was  issued.  This  provided  that  all  officers  in  the  A.  E.  F.  be 
rated  December  15,  1918,  and  thereafter  quarterly  commenc- 
ing April  15,  1919.  The  form  supplied  for  reporting  the 
rating  is  illustrated  in  Figure  24. 


570 


HISTORY  OF  PERSONNEL 


; 

.8 

H 

£5 

B 

j 

™ 

O  C 

fe 

8 

t—  i 

*i 

1-1 

< 

L^  ^ 

N 

2« 

§ 

a 

=1 

o 

H 

^ 

<»'  oo 

H 

JH 

g 

U 

_o 

—    *^ 

• 

a 
B 

g- 

O 

0 

0 
3 
E 

2 

' 

y 

0) 

C      ^ 

M 

c 

SI 

a 

C 

o  X 

•d 

I 

M 
«o 

00 

O 

b' 

5 

d 
o 

"d  ^ 

51 

^ 

b 

E- 

H 

W 

E 

bo 

be  •— 

~  _ 

O 

5 

U 

. 

K^ 

S 

M       .^ 

u 

BRANCH 

5 
•f 

I 

.INARY  f 

H 

B 

EH 

H} 

4 

« 
d 

5J     ^ 

^    P*H 

h—H 

c 

H 

z 

H 

M 

0 

u 

1  w! 

H 

B 

» 

m 

C 
d 

•B    "*< 

S 

i 

H 

5 

6 

o 

0 

O       j 

o  n3 

OFFICERS' 

U! 

fe 

Middle 

B 

H 
£     b 

o    w 

<   •< 

d 
o 
EH 

SUMJtARY  OF.  DUTIES 

Rating  Officer 
at  Rating  Was  Made  in  Ac 

Revising  Officer 
it  Revision  Was  Made  In  A 

Officers'  Rating  Car 

.'General 

;  Value 

Personal 
Qualities 

[onths 

i 

, 

§    IM 

a  _ 

^  TJ 

<•-  ^ 

*"*  A 

0    0 

«H    ~ 

o-*-» 

®  *j     . 

U     "-H 

d 

OH 

o  bo 

o  bo   T* 

^ 

o  >—i 

^ffl 

=  | 

3£    (M 

/ 

i 

^    ^ 

2   w 

—  <  g) 
~  o 

1" 

3 

'to 

11 

11     2 

EH     g 

G     OS 

o>  C 
•*-*  o> 
c  S 

a 

WO 

WO 

pJ     * 

3 

EH 
Bi 

d 

S 

o 

C 

5 

™ 

^ 

P 

3 

CH 

d 
H 

as 

to 

"H 

0 

o 

Si 

^ 

U 

I 

H 
g 
<! 
45 

RATIN 

HEVISI 

h 

O 

i! 

u 

DEVELOPMENT  OF  RATING  SCALE         571 


The  Rating  Scale  has  passed  through  eight  revisions  in 
which  there  has  been  some  change  in  the  wording  of  the  defini- 
tions of  the  five  chief  qualities.  The  last  revision  occurred  in 
September,  1918,  and  the  definitions  there  given  had  re- 
mained standard  up  to  this  writing  (April,  1919).  The 
changes,  on  the  whole,  are  significant  and  are  recorded  here 
as  they  throw  light  upon  how  the  several  items  were  viewed 
by  Army  officials. 

Physical  Qualities.  This  item  was  defined  in  the  first  rat- 
ing scale  (used  in  connection  with  the  First  Series:  Reserve 
Officers'  Training  Camps,  and  printed  in  July,  1917),  as  fol- 
lows: "Consider  how  the  candidate  will  impress  his  men  by 
his  physique,  bearing,  neatness,  voice,  energy  and  endurance." 

The  word  "health"  was  substituted  for  "physique"  only 
to  be  dropped  in  favor  of  "physique"  later.  "Voice"  was 
dropped,  then  added,  then  dropped,  and  finally  included. 

The  final  wording  in  September,  1918,  was:  "Physique, 
bearing,  neatness,  voice,  energy,  and  endurance.  (Consider 
how  he  impresses  his  men  in  the  above  respects.}" 

Intelligence.  The  first  definition  was:  "Consider  ease  of 
learning,  capacity  to  apply  knowledge,  and  ability  to  grasp 
readily  and  to  solve  new  problems." 

In  October,  1917.  "adaptability"  was  added  and  the  phrase, 
"to  overcome  difficulties"  substituted  for  "to  solve  new  prob- 
lems." 

In  December,  1917,  "accuracy"  was  added. 

In  February,  1918,  the  definition  was:  "Consider  accuracy, 
ease  of  learning:  and  ability  to  get  new  points  of  view  and  to 
grasp  readily  and  to  overcome  difficulties." 

In  September,  1918,  the  final  definition  was:  "Atcuracy, 
ease  in  learning,  ability  to  grasp  quickly  the  point  of  view  of 
commanding  officer,  to  issue  clear  and  intelligent  orders,  to 
estimate  a  new  situation,  and  to  arrive  at  a  sensible  decision 
in  a  crisis." 

Leadership.    This  heading  was  referred  to  as   "Military 


572 HISTORY  OF  PERSONNEL 

Leadership,"  until  February,  1918.  The  first  definition  was: 
"Consider  self-reliance,  initiative,  decisiveness,  and  the  abil- 
ity to  command  the  obedience,  loyalty  and  cooperation  of 
men." 

In  October,  1917,  "tact"  was  added. 

In  December,  1917,  "aggressiveness"  was  added.  In  Febru- 
ary "force"  was  substituted  for  it. 

In  September,  1918,  the  final  definition  was:  "Initiative, 
force,  self-reliance,  decisiveness,  tact,  ability  to  inspire  men 
and  to  command  their  obedience,  loyalty  and  cooperation." 

Personal  Qualities.  The  term  "Character"  was  used  until 
April,  1918.  A  statistical  study  showed,  however,  that  officers 
were  rated  altogether  too  high  under  this  heading  due  to  the 
fact  that  "character"  was  associated  with  "personal  habits." 
The  new  heading  has  been  a  far  greater  success,  as  it  focusses 
attention  upon  the  other  items  even  more  than  upon  "personal 
habits."  The  original  definition  was:  "Consider  reliability, 
loyalty,  disposition:  and  fairness  and  general  helpfulness  to- 
ward his  men." 

In  September,  1917,  it  read:  "Consider  reliability,  disposi- 
tion, loyalty,  regard  for  authority,  and  the  spirit  of  service 
and  general  helpfulness." 

In  October,  "Consider  loyalty,  reliability,  sense  of  duty, 
carefulness,  perseverance,  and  the  spirit  of  service  and  gen- 
eral helpfulness." 

In  November,  1917,  "sense  of  duty"  and  "carefulness"  were 
dropped;  and  "cheerfulness"  and  "personal  habits"  added. 

In  February,  1918,  it  read:  "Consider  industry,  depend- 
ability, personal  habits,  consideration  for  subordinates,  loyalty 
to  the  organization  to  which  he  belongs,  willingness  to  carry 
out  plans  even  tho  they  do  not  meet  his  entire  approval,  and 
readiness  to  shoulder  responsibility  for  his  own  acts." 

In  March,  1918:  "Consider  industry,  dependability,  loyalty, 
personal  habits,  considerations  for  subordinates,  and  readi- 
ness to  shoulder  responsibility  for  his  own  acts." 

And  in  September,  1918:   "Industry,  dependability,  loyalty, 


DEVELOPMENT  OF  RATING  SCALE         573 

readiness  to  shoulder  responsibility  for  his  own  acts,  freedom 
from  conceit  and  selfishness,  readiness  and  ability  to  co- 
operate." 

General  Value  to  the  Service.  The  first  definition  was: 
"General  impression  of  the  candidate's  probable  value  for  a 
company  officer,  considering  his  military  knowledge  and  train- 
ing; and  his  value  as  an  administrator,  as  a  drill  master,  and 
as  a  leader  in  action." 

In  October,  1917,  it  read:  "General  impression  of  the 
candidate's  probable  value  as  a  company  officer,  considering 
his  ability  as  an  administrator,  as  a  drill  master,  as  a  leader 
in  action;  and  whether  he  can  arrive  quickly  at  a  sensible  de- 
cision in  a  crisis." 

In  February,  1918:  "Consider  professional  knowledge, 
skill  and  experience;  and  his  success  as  an  organizer  and  ad-, 
ministrator." 

In  April,  1918:  "Consider  his  value  as  an  administrator, 
as  an  instructor,  as  a  drill  master,  as  a  leader  in  action;  and 
whether  he  can  arrive  quickly  at  a  sensible  decision  in  a 
crisis." 

And  in  September,  1918:  "His  professional  knowledge, 
skill  and  experience,  success  as  an  administrator  and  instruc- 
tor; ability  to  get  results." 

It  is  apparent  that  the  heading  "Personal  Qualities"  has 
been  the  most  difficult  to  define  with  the  heading  "General 
Value  to  the  Service"  next.  The  other  three  headings  clearly 
connote  a  more  definite  meaning  and  their  present  definitions, 
it  is  safe  to  predict,  will  not  be  changed  materially  in  any 
subsequent  editions. 

ADMINISTRATIVE  USE  OF  THE  RATING  SCALE 

Indicating  Individual  Ability.  The  scale  is  a  measure  of  a 
man's  ability  in  each  of  five  qualifications.  Some  men  may 
be  in  the  highest  group  for  intelligence,  but  low  in  physical 
ship.  The  scale  gives  to  commanding  officers  who  make  as- 


574 HISTORY  OF  PERSONNEL 

signments  a  standard  record  of  the  essential  traits  of  the 
men  available  and  if  the  procedure  is  followed,  much  more 
exact  assignments  will  result. 

Use  for  Promotion,  Transfer  and  Separation.  General 
Orders  No.  78,  War  Department,  1918,  provided  for  ?  per- 
sonnel board  to  recommend  details,  assignments  and  appoint- 
ment of  officers.  In  General  Orders  No.  85,  War  Depart- 
ment, 1918,  detailed  instruction  on  the  use  of  the  scale  by 
the  board  is  given. 

"1.  All  officers  in  the  Army  below  the  grade  of  brigadier 
general  on  active  duty  and  serving  within  the  continental 
limits  of  the  United  States,  will  hereafter  be  rerated  ac- 
cording to  the  rating  scale  every  three  months,  beginning 
October  15,  1918.  Ratings  will  be  recorded  on  the  quar- 
terly rating  sheet  (Form  CCP — 1105).  After  the  "rat- 
ings," "reratings,"  "and  items  since  last  report"  are 
recorded  on  the  original  officer's  qualification  card  on  file 
at  unit  headquarters,  the  quarterly  rating  report  will  within 
10  days  of  the  date  specified  for  that  quarterly  rating  be 
forwarded  by  the  division,  department,  district,  post,  camp, 
or  other  station  commander  directly  to  The  Adjutant  Gen- 
eral of  the  Army  except  in  the  case  of  staff  corps  and 
departments,  whose  reports  will  be  forwarded  to  the  chief 
of  staff  corps  or  department  concerned. 

"2.  All  officers  who  have  not  been  rated  and  all  officers 
immediately  upon  being  commissioned  shall  be  rated  in 
accordance  with  General  Orders,  No.  46,  War  Department, 
1918,  and  the  duplicate  qualification  cards  dispatched  as 
therein  specified. 

"3.  Whenever  the  average  of  a  rating  and  revised  rating 
of  any  officer  falls  below  45  points  the  rating  will  be  re- 
viewed by  the  personnel  board  appointed  under  the  provi- 
sions of  paragraph  2,  General  Orders,  No.  78,  War  De- 
partment, 1918.  If  the  rating  in  question  is  verified  by  this 
board  as  falling  below  45,  the  commanding  officer  will  re- 
1  commend  to  The  Adjutant  General  of  the  Army  that  the 
officer  in  question  be  either — 

"a.  Placed  upon  probation  until  next  regular  rating; 

"b.  Transferred;  or 

"c.  Discharged  from  the  service. 


DEVELOPMENT  OF  RATING  SCALE         S75 

Any  officer  placed  upon  probation  or  transferred  because 
of  low  ratings,  the  average  of  whose  rating  and  revision  at 
any  subsequent  time  is  less  than  45  points,  will  be  recom- 
.  mended  for  discharge  from  the  Army. 

"4.  In  the  execution  of  General  Orders,  No.  78,  War 
Department,  1918,  commanding  officers  will  be  guided  by 
the  following  instructions: 

"a.  All  recommendations  for  appointments  within  their 
commands  after  December  1,  1918,  will  be  made  on  Form 
CCP — 1155,  and  the  candidates  for  appointments  shall  be 
rated  according  to  the  rating  scale  by  the  officer  making  the 
recommendation . 

"b.  All  assignments  within  their  commands  shall  be 
made  primarily  on  the  basis  of  the  qualification  cards,  in- 
clusive of  the  ratings. 

"c.  Promotions  shall  be  based  primarily  upon  ratings.  If 
any  officer  is  recommended  for  promotion  when  another 
officer  of  the  same  grade  with  a  substantially  higher  rating 
in  the  same  regiment,  separate  battalion  or  other  separate 
unit  is  eligible,  the  commanding  officer  shall  state  the  rea- 
sons for  the  recommendations. 

"The  foregoing  instructions  will  not  be  construed  as  pre- 
venting personnel  boards  from  making  such  investigations 
and  examinations  as  may  be  deemed  necessary  to  determine 
the  fitness  and  capacity  of  those  whose  names  are  under 
consideration  by  the  board. 

"5.  Application  for  Officers'  Qualification  Cards  (CCP — 
1101),  Instructions  (CCP — 1102),  Supplementary  Instruc- 
tions (CCP — 1104),  Forms  for  Quarterly  Rating  Report 
(CCP — 1105),  and  Forms  for  Recommendation  for  Promo- 
tion (CCP — 1152),  Forms  for  Recommendations  for  Ap- 
pointment (CCP — 1155),  will  be  made  to  The  Adjutant 
General  of  the  Army,  Room  528,  War  Department." 

Following  the  signing  of  the  armistice  instructions  were 
issued  in  Circular  No.  73,  War  Department,  1918,  that 
each  officer  about  to  be  separated  from  the  service  would  have 
a  final  rating  entered  on  his  qualification  card.  The  same  final 
rating  was  also  included  on  the  report  of  discharge,  Form 
150 — CPB — GS,  which  included  recommendations  concerning 
the  officer's  subsequent  appointment  in  the  Regular  Army  or 
the  Reserve  Corps. 


576 


HISTORY  OF  PERSONNEL 


Recording  Ratings  on  Qualification  Cards.  The  earliest 
edition  of  the  Officers'  Qualification  Card  (reproduced  on  page 
544)  provided  three  spaces  for  recording  the  date,  rating  on 
each  of  five  qualities,  "Total,"  and  "Qualified  for  Promo- 
tion"— "Yes,"  "No,"  and  signature  of  the  rating  officer.  The 
second  edition  of  January  5th,  increased  the  lines  for  record- 

QUARTERLY  RATING  REPORT 

Sigtutun  (TVH  ««»  Written)  of  Rating  O&tt  ctftifyitlg  tfctt  atfap 


Orp, 


Signature  (Typed    nd  Written)  of    Revuuig    Officer    arriving  dm 
teviiuxjs  were  nude  in  KmrHinfTt  with  Riting  Sale  iimnicrkim. 


1    1— f-f-f-FFH 


FIG.  25 
Quarterly  Rating  Report 

ing  separate  ratings  to  four,  added  the  "Signature  of  the  Re- 
vising Officer"  and  space  for  "Remarks,"  "Promotion," 
"Transfer,"  etc.,  after  each  of  the  periodic  ratings. 

As  a  result  of  an  inquiry  of  May  22nd,  (described,  page 
547),  there  were  added  after  each  periodic  rating,  the  ques- 
tions, "How  long  have  you  known  him?"  "Suitable  for  what 
branch  of  Service?"  "Weaknesses  and  disciplinary  actions?" 

Extra  spaces  for  suplementary  ratings  for  pilots  and  ob- 
servers (described,  page  568)  were  added  on  the  edition  of 
March  26th. 


DEVELOPMENT  OF  RATING  SCALE 


Recording  Ratings  on  Quarterly  Rating  Sheets.  The  rat- 
ings made  each  quarter  were  recorded  on  a  quarterly  rating 
report,  (reproduced  in  Figure  25).  These  ratings  were  trans- 
ferred to  the  card  at  field  headquarters  and  dispatched  to 
Washington  to  be  entered  on  the  card  in  the  central  file: 

Supervising  the  Ratings.    After  the  rating  of  January  15, 


28 


15 


J 


20  25  30  35  40  45  50  55  60  65  70  75  80  85  90  95  100 

POINTS   RECEIVED 

Fio.  26 
Distribution  of  Ratings 

1918,  sheets  were  sent  to  division  commanders  asking  for  a 
report  on  the  ratings.  The  number  of  second  lieutenants,  first 
lieutenants,  captains,  majors,  lieutenant  colonels,  colonels, 
and  brigadier  generals  were  separately  called  for  according  as 
their  ratings  fell  into  the  classes:  0 — 5,  6 — 10,  11 — 15,  etc. 
These  reports  showed  a  decided  tendency  on  the  part  of 
officers  to  rate  too  high  and  also  that  this  was  more  preva- 
lent in  some  camps  than  others.  On  the  whole,  those  camps 
made  the  best  showing  at  which  special  instruction  had  been 
given  by  representatives  of  the  Committee.  As  a  result  re- 
newed efforts  were  made  to  reach  every  officer  and  instruct 
him  in  the  use  of  the  scale  through  word  of  mouth. 


578  HISTORY  OF  PERSONNEL 

A  special  study  was  made  of  the  ratings  given  299  Regular 
Army  officers  by  five  well  known  major  generals,  and  distribu- 
tion (as  shown  in  Figure  26)  was  discovered. 

This  distribution  is  about  perfect  on  theoretical  grounds  and 
showed  that  theory  and  practice  would  agree  when  the  rat- 
ings were  carefully  made  out  according  to  instructions. 

The  ratings  of  June  30,  1918,  were  given  careful  study. 
The  average  rating  was  found  to  be  about  sixty-five — much 
too  high.  A  study  made  of  Ordnance  Corps  ratings  of  the 
same  date  showed,  on  the  other  hand,  a  remarkably  normal 
distribution — so  much  so  that  it  was  accepted  as  the  standard 
toward  which  to  work.  On  a  special  form  the  distribution 
of  ratings  of  the  Ordnance  Corps  and  a  particular  camp  were 
outlined  and  this  chart  was  sent  to  the  commanding  officer  of 
the  camp  in  order  that  he  might  see  how  his  camp  compared 
with  what  was  looked  upon  as  the  ideal  distribution.  In  some 
cases  this  report  led  to  revisions  and  in  several  other  cases 
to  a  special  effort  within  the  camp  to  bring  about  more  stand- 
ard ratings  in  the  future. 

After  the  October  1 5th  ratings  were  entered  on  the  cards  in 
the  central  file,  studies  were  made  and  the  ratings  for  each 
camp  charted,  to  show  the  average  rating  given  by  each  rating 
officer  and  the  distribution  of  the  ratings.  The  following  figure 
shows  the  method  followed.  The  name  of  the  rating  officer 
is  recorded  at  the  left;  opposite  is  shown  by  a  small  dot 
each  rating  given  by  him  together  with  a  large  dot  indicat- 
ing the  average  of  all  the  ratings.  At  the  extreme  right  is 
added  "remarks"  as  to  whether  the  ratings  are  probably  too 
high  or  too  low,  etc.  In  many  cases  the  record  of  an  officers' 
ratings  were  communicated  to  his  commanding  officer  in  order 
to  have  them  corrected  or  the  officer  further  instructed  in  the 
use  of  the  scale. 

SPECIAL  STUDY  OF  THE  SCALE 

During  October  to  December,  1918,  Dr.  H.  O.  Rugg  made 
a  special  statistical  study  of  the  results  of  the  scale  and 


DEVELOPMENT  OF  RATING  SCALE         579 

spent  some  time  in  the  field  at  Camp  Sheridan  anfl  Camp 
Taylor.  As  a  result,  the  following  recommendations  were 
made. 

1.  That  at  least  three  independent  ratings  be  obtained 
on  each  officer  in  each  Army  unit;  that  machinery  be  set  up 
to  insure  that   these   ratings   are   made   intelligently,   and 
that  they  shall  not  be  mere  revisions  as  at  present. 

2.  That  the  average  of  the  independent  ratings  for  each 
trait   (physical  qualities,  intelligence,  leadership,  personal 
qualities,  general  value  to  the  Service)   and  for  total  rat- 
ing be  reported  on  the  Officer's  Qualification  Cards  as  the 
official  quarterly  rating. 

8.  That  these  ratings  be  made  by  members  of  a  rating 
scale  board,  the  members  of  which  for  each  Army  unit  shall 
be  appointed  by  the  officer  who  is  best  equipped  to  do  so. 

4.  That  the  members  of  this  Board  receive  very  detailed 
and  explicit  instructions  for  constructing  and  using  scales. 

5.  That  these  instructions  shall  prescribe  that  each  rat- 
ing be  done  on  a  new  rating  scale  to  be  made  in  accordance 
with  the  following  procedure.     That  at  each  Army  unit  an 
officer  to  be  designated  by  the  commanding  officer,  prob- 
ably the  Personnel  Officer  in  many  cases,  will  act  as  in- 
structor at  a  meeting  of  all  rating  officers  in  the  unit.     In- 
structions should  be  given  each  quarter,  to  make  sure  that 
any  new  rating  officers  who  have  been  appointed  will  con- 
struct standardized  scales.     At  this  meeting,  each  rating 
officer  shall  construct  a  scale  by  carrying  out  the  following 
steps : 

a.  An  original  list  of  at  least  twenty-five  names   of 
officers  of  the  same  rank  shall  be  drawn  up.     It  will  be 
wise  to  include  in  such  lists,  as  far  as  possible,  officers 
who   have   served   in   the   present  Army   unit   for   some 
time.     This  is  in  order  that  if  desired  the  scales  of  the 
three  members  of  the  rating  scale  board  may  be  com- 
pared and  made  equivalent. 

b.  Each  officer  on  this  original  list  shall  be  located 
on  a  "checking  sheet"  in  one  of  seven  groups  for  each 
sub-element  of  the  rating  scale. 

c.  From  this  detailed  estimate  of  the  qualities  of  each 
officer,  a  list  shall  then  be  arranged  in  rank  order,  so 
that  the  officers  are  arranged  from  the  best  to  the  poorest. 
This  serial  arrangement  shall  be  carried  out  separately 


580 HISTORY  OF  PERSONNEL 

for  'each  of  the  five  groups  of  qualities,  i.  e.,  physical,  in- 
telligence, leadership,  personal  qualities,  and  jgeneral 
value  to  the  Service.  Thus,  five  independent  rank  order 
lists  will  be  drawn  up. 

d.  The  men  to  be  entered .  on  the  scale  as   standard 
officers  for  the  grades  in  each  of  the  five  qualities  shall 
be  chosen  from  the  rank  order  list  by  the  careful  weigh- 
ing of  the  merits  of  the  officers:  first,  nearest  the  very 
top  of  the  list — highest;  second,  nearest  the  bottom  of 
the  list — lowest;   third,   near  the   "middle";   and   again, 
fourth  and  fifth,  near  the  mid-point  between  highest  and 
middle  and  between  lowest  and  middle,  respectively. 

e.  In  rating  officers  on  this  scale,  each   rating  officer 
shall  rate  all  of  his   subordinates   for  one  quality  at  a 
time,  i.  e.,  all  of  them  for  physical  qualities,  then  all  for 
intelligence,  then  all  for  leadership,  etc.,  throughout  the 
list.     The  totaling  of  the  ratings  assigned  to  the  separate 
qualities  on  any  one  man  shall  be  done  only  after  all  the 
separate  ratings  have  been  made. 

f.  The  ratings  of  the  three  members  of  the  rating  scale 
Board  shall  be  compiled  by  an  officer  designated  (the  per- 
sonnel officer  in  most  cases).     Each  officer  on  whom  there 
is  a  larger  difference  between  any  two  ratings  than  twelve 
points  should  be  rerated.    In  those  cases  in  which  there  is 
still  a  great  difference  in  rating,  the  final  rating  shall  be 
given   by    a   conference    of   the   rating   board,   in    which 
specific  comparisons  of  the  officer  with  those  on  the  re- 
spective scales  should  be  made  and  discussed. 

6.  It  is  believed  that  it  is  practicable  to  inaugurate  some 
such   procedure  as  that  outlined  above  for  the  ratings   of 
April  15th. 

7.  The  practice  of  having  original  ratings  revised  should 
be  abolished  at  once,  since  three  independent  ratings  will 
be  more  accurate  than  a  revision. 


SECTION  XII. 

COOPERATION  WITH  OTHER* 
DEPARTMENTS 

It  was  inevitable  that  in  the  development  of  per- 
sonnel work  the  Committee  on  Classification  of 
Personnel  would  be  called  upon  to  aid  other  depart- 
ments of  the  Army  in  various  ways.  As  shown  in 
Chapters  19  and  20,  Army  paper  work  became  in- 
timately connected  with  personnel  work  in  the 
camps.  Several  additional  phases  of  this  subject 
are  discussed  in  Chapter  44  as  they  relate  to  the 
Adjutant  General's  Office.  In  the  next  chapter  are 
discussed  the  steps  by  which  the  classification  sys- 
tem was  gradually  adopted  by  The  Provost  Mar- 
shal General  and  incorporated  into  the  system  of 
classifying  all  draft  registrants  throughout  the 
country. 

The  Committee  was  most  intimately  associated 
with  the  Division  of  Psychology,  Surgeon  General's 
Office,  in  that  Major  R.  M.  Yerkes,  head  of  that 
division  was  a  member  of  the  Committee  and  sev- 
eral members  of  the  Committee  were  psychologists 
by  profession.  The  use  and  results  of  the  Army  In- 
telligence Tests  are  presented  in  Chapter  X,  of  the 
Personnel  Manual  (Volume  II.)  Certain  more 
general  phases  of  this  subject  are  set  forth  in  Chap- 
ter 46.  Another  more  specialized  psychological 


582  HISTORY  OF  PERSONNEL 

problem  dealing  with  the  selection  of  aviators  and 
ground  officers  in  the  Department  of  Military  Aero- 
nautics is  given  in  Chapter  47. 

Personnel  work  was  early  inaugurated  in  the 
Quartermaster  Corps  and  was  maintained  by 
officers  in  that  Corps.  The  relation  of  the  Commit- 
tee to  this  work  is  described  in  Chapter  48. 

Through  the  fact  that  the  Marine  Corps  was 
brigaded  with  the  Army  in  France  it  became  neces- 
sary for  the  same  system  to  be  installed  in  that 
Corps.  Chapter  49  relates  the  steps  leading  up  to 
this  introduction  of  personnel  work  into  the  Navy 
and  how  it  was  finally  established  not  only  in  the 
Marine  Corps,  but  also  in  the  Navy  proper. 


CHAPTER  44 
THE  ADJUTANT  GENERAL'S   OFFICE 

The  Committee  on  Classification  of  Personnel,  being  for 
the  greater  part  of  its  existence  under  the  jurisdiction  of 
The  Adjutant  General,  was  naturally  in  close  touch  with 
the  other  divisions  of  The  Adjutant  General's  Office  and 
was  therefore  in  a  position  to  cooperate  with  them.  The 
more  important  ways  in  which  the  Committee  rendered  assis- 
tance to  The  Adjutant  General's  Office  will  be  discussed  in 
this  chapter. 

REPORT  ON  ARMY  PAPER  WORK 

In  the  middle  of  November,  1917,  Mr.  W.  R.  DeField,  an 
efficiency  expert  from  Montgomery  Ward  and  Company,  was 
called  to  Washington  by  the  Committee  to  make  a  study  of 
Army  paper  work  with  a  view  to  reducing  it  if  possible.  Mr. 
DeField  first  studied  the  various  forms  on  file  in  the  War  De- 
partment, but  he  soon  found  that  the  work  in  Washington  was 
so  subdivided  as  to  make  it  impossible  to  gather  sufficient  data 
to  outline  comprehensive  plans.  He  therefore  visited  a  num- 
ber of  camps  and  made  a  careful  study  and  analysis  of  all 
paper  work. 

Intra-camp  Correspondence.  During  these  visits  to  various 
camps  suggestions  were  made  for  the  reduction  of  paper  work 
in  connection  with  intra-camp  correspondence.  In  one  camp, 
for  instance,  in  the  Division  Adjutant's  Office  they  were  typ- 
ing an  indorsement  on  each  set  of  papers  when  sent  out  for 
attention,  action,  etc.  It  was  recommended  that,  instead,  a 
reference  blank  be  used  which  would  have  printed  on  it  a 
list  of  the  various  offices  and  officers  to  whom  correspondence 
might  be  referred  and  also  a  list  of  the  various  reasons  for 
forwarding  the  communication  in  question.  Thus,  all  that 

583 


584 


PI  I  STORY  OF  PERSONNEL 


would  be  necessary  in  forwarding  correspondence  would  be 
to  type  the  date  and  the  name  of  the  person  forwarding  it, 
and  place  a  check  mark  in  front  of  the  name  of  the  person 
to  whom  it  was  forwarded,  and  a  check  mark  in  front  of  the 
reason  for  forwarding.  This  suggestion  was  adopted  in  sev- 
eral of  the  camps.  An  example  of  such  a  memorandum  in- 
dorsement for  intra-camp  correspondence  is  as  follows: 

Headquarters  86th  Division,  N.  A.,  Camp  Grant,  111.,.  . .  191 . 

MEMORANDUM 
Ind. 


TO: 

1 Chief  of  Staff 

2 Assistant  Chief  of  Staff 

3 ..Division  Adjutant 

4 Camp  Adjutant 

6 Division  Inspector 

6 Camp  Inspector 

7 Sanitary  Inspector 

8 Judge  Advocate 

9 Division  Quartermaster 

10 Camp  Quartermaster 

11 Constructing       Quarter- 
master 

12 Utilities  Department 

13 Surgeon 

14 Engineer 

15 Division    Ordnance    Of- 
ficer 

16 Camp  Ordnance  Officer 

17 Signal  Officer 

18 Mustering  Officer 

19 Intelligence  Officer 

20 Personnel  Officer 

21 Statistical  Officer 

22 Insurance  Officer 

23 Exchange  Officer 

24 Range  Officer 

25 Interpreter 

26 Comm'd't  Inf.  School  of 

Arms 


FOR: 

(a) his  attention 

(b) inviting  attention  to 

....... ind. 

(c) to  note  and  return 

with  all  papers 

(d) to  note  and  file 

(e) official  copy  furnished 

(f) Information  and  guid- 
ance 

(g) transmitted 

(h) forwarded 

(i  ) returned   

( j  ) approved 

(k) disapproved 

(1  ) remark 

(m) remark  and  recom- 
mendation 

(n) recommendation 

(o) expression  of  opinion 

(p) suggestion  as  to  in- 
dorsement of  letter 

(q) for  acknowledgment 

and  reply  to  writer 

(r) action 

(s) action  contemplated  in 

ind. 

(t ) return  with  report  of 

action 

(u) compliance 


ADJUTANT  GENERAL'S  OFFICE 


585 


TO: 

27 C.  O.  3d  Officers'  Train- 
ing Camp 

28 C.  O 

29 C.  G 

30 Sgt.  Major  

31 Chief  Clerk  

32 Efficiency  Board 

33 Board,  discharges  under 

Paragraph  139  A.  R. 

34 Division  Athletic  Officer 

35.. 


FOR: 

(v) compliance  with 

ind. 

(w) nomination 

(x) investigation  and  re- 
port 

(y) order  telegram 

ind. 

(z) signature 

(pp) attach  previous  corre- 
spondence 


........  Distribution  —  "A" 

........  Distribution—  "B" 

........  Distribution  —  "C" 

........  Distribution—  "D" 

BY  COMMAND   OF   BRIGADIER   GENERAL   KENNON. 
ASS'T  DIVISION  ADJ'T 


Distribution 


Distribution  "B 


Distribution 
Distribution 


"A"  Copy  to  Cammanding'  General  and  Aids,  all  members  of 
the  Camp  and  Division  Staff;  all  Commanders  of 
Brigades,  Regiments,  Independent  Battalions  and  Com- 
panies; also  all  Independencies. 

Copy  to  Commanding  General  and  Aids,  all  members 
of  Camp  and  Division  Staff,  and  all  Commanders  of 
Brigades,  Regiments,  Independent  Battalions  and  Inde- 
pendent Companies. 

Copy  to  Commanding  General  and  Aids,  all  members  of 
Camp  and  Division  Staff. 

"D"  Copy  to  Commanding  General  and  Aids,  and  all  members 
Division  Staff. 


"C" 


Reports  of  Changes  and  Muster  Rolls.  The  main  purpose 
of  Mr.  DeField's  visits  to  the  camps  was,  however,  to  study 
the  paper  work  in  connection  with  forwarding  records  from 
camps  to  the  War  Department.  This  report  was  considered 
by  Colonel  (now  Major  General)  P.  C.  Harris,  in  connection 
with  plans  already  on  foot,  and  after  many  conferences,  Gen- 
eral Orders  No.  42,  War  Department,  April,  1918,  was  issued, 
which  provided  for  the  discontinuance  of  the  muster  rolls  and 
for  the  appointment  of  a  personnel  officer  for  "each  regiment, 
separate  or  detached  battalion,  or  similar  unit,  and  for  the 
headquarters  of  each  army,  army  corps,  and  territorial  depart- 
ment, and  for  each  post,  camp,  or  other  station."  The  per- 
sonnel officers,  beginning  with  May  1,  1918,  were  directed  to 
prepare  payrolls,  since  after  April  30  there  was  to  be  "no 


586 HISTORY  OF  PERSONNEL 

muster  of  troops  for  pay."  And  the  bimonthly  muster  of 
troops  and  the  preparation  of  muster  rolls  was  ordered  to  be 
discontinued  after  June  30.  This  alone  was  a  tremendous 
saving  and  worth  the  time  and  effort  involved  in  making  the 
study  of  paper  work.  It  did  away  with  the  necessity  of  a 
separate  force  for  a  mustering  office,  and  simply  added  one 
more  duty  to  those  of  the  personnel  officer  for  the  perform- 
ance of  which  the  necessary  information  was  already  avail- 
able, thus  eliminating  the  necessity  for  duplication  of  informa- 
tion. (This  subject  is  considered  in  connection  with  the  rise 
of  paper  work  in  the  camp  personnel  offices  in  Chapter  19.) 

Consolidation  of  All  Paper  Work  Incident  to  Receiving 
Drafted  Men  in  the  Camps.  Mr.  DeField  also  rendered  a 
detailed  report  as  to  the  procedure  at  one  army  cantonment 
by  which  a  very  great  saving  in  paper  work  had  been  accom- 
plished through  the  consolidation  of  this  work  into  one  office 
under  the  camp  personnel  officer.  This  report  was  the  starting 
point  from  which  gradually  developed  a  complete  consolida- 
tion of  all  such  paper  work.  (See  Chapter  20  for  details.) 

THE  ESTABLISHMENT  OF  THE  WAR  SERVICE 
EXCHANGE 

Before  the  War  Service  Exchange  was  established  in 
January,  1918,  tenders  of  service  from  all  parts  of  the  coun- 
try were  sent  to  the  various  divisions  and  subdivisions  of  the 
War  Department,  which  in  turn  referred  many  of  them  to 
The  Adjutant  General's  Office.  The  Miscellaneous  Division, 
A.  G.  O.,  handled  a  large  percentage  of  these  offers,  but  the 
correspondence  accumulated  so  fast  that  it  was  absolutely 
impossible  for  that  division  to  handle  it  with  any  degree  of 
effectiveness,  in  addition  to  its  other  duties.  It  was  therefore 
a  genuine  service  to  The  Adjutant  General's  Office  to  have 
this  central  bureau  established  which  served  as  a  clearing- 
house for  offers  of  assistance  to  the  government.  It  relieved 
the  other  divisions  which  had  been  obliged  to  handle  such 
correspondence  previously. 


ADJUTANT  GENERAL'S  OFFICE  587 

A  great  many  men  and  women  offered  their  services  through 
their  Congressmen.  In  handling  these  cases  the  War  Service 
Exchange  met  a  particular  need,  as  it  was  the  only  central 
congressional  service  bureau  in  the  War  Department.  This 
correspondence  became  so  heavy  that  a  special  correspondent 
was  delegated  by  The  Adjutant  General's  Office  to  the  War 
Service  Exchange  to  handle  it.  (For  details  concerning  the 
War  Service  Exchange,  see  Chapter  39.) 

ESTABLISHMENT  OF  STATISTICAL  SECTION, 
A.  G.  O. 

In  the  spring  of  1918  a  study  was  made  of  the  handling 
of  current  strength  records  in  The  Adjutant  General's  Office 
by  Mr.  I.  B.  Davies,  one  of  the  Committee  associates.  It 
was  found  that,  as  a  result  of  the  rapid  expansion  of  the 
Army,  the  existing  method  of  maintaining  strength  statistics 
was  inadequate,  and  it  was  therefore  recommended  that  an 
officer  with  statistical  training  be  put  in  charge  of  handling 
the  monthly  strength  returns  with  a  view  to  improving  the 
accuracy  of  the  reports  and  bringing  them  up  to  date. 

A  Statistical  Section  of  The  Adjutant  General's  Office  was 
accordingly  established  in  July,  1918,  with  2nd  Lt.  (later 
1st  Lt.)  Earl  C.  Norris  in  charge. 

System  Existing  Prior  to  July,  1918.  Prior  to  July,  1918, 
three  ledgers  were  kept,  one  each  for  the  Regular  Army,  the 
National  Guard  and  the  National  Army.  These  three  volumes 
provided  for  the  strength  of  units  of  the  line  only,  and  the 
figures  were  transcribed  monthly  from  strength  returns. 
Strength  of  the  several  staff  corps  was  obtained  from  the 
chief  of  each  corps,  and  represented  merely  the  total  number 
of  officers  and  enlisted  men  in  the  corps,  with  no  information 
as  to  their  distribution  among  organizations  and  camps. 
Work  on  the  ledgers  was  often  several  months  behind,  and 
collection  of  delinquent  returns  was  not  prosecuted  vigor- 
ously. In  short,  the  system  of  ledger  records  was  unable  to 


588 HISTORY'  OF  PERSONNEL 

furnish  the  current  information  which  was  becoming  indispen- 
sable. 

Task  of  the  Statistical  Section.  In  July,  1918,  the  Statis- 
tical Section  of  The  Adjutant  General's  Office  was  formed 
with  the  immediate  task  of  collecting,  compiling  and  fur- 
nishing information  relative  to  the  distribution  of  the  army 
by  organization,  location,  color,  and  branch  of  service.  In 
other  words,  the  questions  to  be  answered  were  these: 

Of  a  given  organization — 

How  many  officers  and  enlisted  men? 

Are  they  white  or  colored? 

Where  are  they  located? 

To  what  branch  of  the  service  do  they  belong? 

And  of  camps,  .posts  and  other  stations — 
What  organizations  are  located  there? 
(strength,  color,  etc.) 

System  Established  in  the  Statistical  Section.  In  order  to 
answer  the  above  questions  a  5x8  card  file  was  constructed, 
in  which  each  card  represents  an  organization  or  detachment 
thereof.  The  cards  were  grouped  geographically,  i.  e.,  all  the 
organization  serving  at  a  given  camp  were  represented  behind 
the  index  card  of  that  camp.  The  index  cards  were  arranged 
alphabetically.  Each  organization  card  showed  the  number  of 
officers  and  enlisted  men,  white  or  colored,  and  the  date  and 
source  of  the  latest  information.  At  each  camp,  post  or  other 
station  where  more  than  one  organization  was  located,  a  "total" 
card  summarized  the  strength  of  the  camp  and  showed  all 
arrivals  and  departures  of  troops,  as  well  as  prospective  troop 
movements  which  had  been  ordered.  Celluloid  tabs  affixed 
to  each  of  the  organization  cards  indicated  branch  of  service. 
.  The  card  file  just  described  was  commenced  by  taking  as 
a  basis  the  strength  returns  of  June,  1918.  These  cards  were 
checked  daily  against  orders  for  troop  movements  and  tele- 
graphic reports  of  troop  movements,  and  monthly  against  the 
organization  strength  returns.  Organizations  belonging  to  the 
American  Expeditionary  Forces  submitted  the  monthly 


ADJUTANT  GENERAL'S  OFFICE  589 

strength  returns  but  they  did  not  cable  information  concerning 
their  movements  within  Europe. 

Revision  of  A.  G.  0.  Strength  Returns.  As  soon  as  the 
work  of  the  Statistical  Section  was  started,  it  became  apparent 
that  the  forms  of  monthly  strength  returns  then  in  use  were 
quite  inadequate.  As  stated  above,  the  staff  departments  were 
reporting  to  The  Adjutant  General  merely  by  total  strength, 
and  certain  line  organizations  were  reporting  improperly  if  at 
all.  This  deficiency  in  the  forms  was  keenly  felt  throughout 
the  War  Department  and  in  the  field.  The  various  offices 
requiring  information  either  improvised  forms  for  their  own 
particular  requirements  or  were  forced  to  make  constant  use 
of  the  telegraph.  Considerable  extra  expense' and  duplication 
thus  resulted,  the  chief  burden  falling  on  the  troops  in  the 
field,  who  were  called  upon  constantly  for  special  reports  of 
every  kind. 

A  revision  of  the  A.  G.  O.  strength  return  forms  produced  a 
series  of  six,  which  cover  the  present  organization  of  the  Army, 
and  which  do  away  in  large  measure  with  the  necessity  for 
special  reports.  In  addition,  there  have  been  constructed 
forms  for  some  of  the  staff  departments  which  do  away  with 
duplication  in  the  field.  Through  cooperation  with  these 
staff  departments,  forms  have  been  evolved  which  meet  the 
requirements  of  The  Adjutant  General  and  furnish  the  infor- 
mation necessary  for  the  department  concerned.  The  forms 
in  use  are  these: 

Company  Return  Form  30  A.G.O. 

Regimental  Return  41  A.G.O. 

Headquarters  Return  "       28  A.G.O. 

Post  or  Camp  Return  27  A.G.O. 

Division   Return  "     678  A.G.O. 

Department,  Corps  and  Army 

Return  "  24  &  24a  A.G.O. 

Air  Service-Squadron  (Com- 
pany or  Detachment)  Re- 
turn (Military  Aeronautics 
and  Aircraft  Production)  Form  1  D.M.A. 


590  HISTORY  OF  PERSONNEL 

Signal   Corps   Return  From     285  C.S.O. 

Quartermaster  Return  434  Q.M.C. 

Motor  Transport  Corps  Return      "         477  M.T.C. 
Ordnance  Department  Strength 

Return  "  6028  O.D. 

Function  of  the  Statistical  Section,  The  collected  informa- 
tion is  compiled  in  a  variety  of  ways  and  distributed  to  offices 
of  the  War  Department  interested  in  its  use.  Perodic  reports 
are  furnished,  and  special  reports  are  prepared  dealing  with 
the  various  phases  of  the  distribution  of  the  Army. 

Since  the  signing  of  the  armistice,  the  progress  of  demobili- 
zation has  been  recorded  by  organization,  strength,  and  branch 
of  service,  and  a  variety  of  periodic  reports  compiled  for  the 
War  Department. 

CHECKING  OF  RECORDS  OF  ENLISTED  MEN  AND 
OFFICERS  AT  PORTS  OF  EMBARKATION 

Chapter  37  records  the  establishment  of  a  force  at  ports 
of  embarkation  whereby  the  records  of  enlisted  men  and 
officers  were  checked  to  see  that  all  were  present  and 
properly  made  out.  This  work  happened  to  be  handled  to 
a  considerable  extent  by  the  Committee  because  of  its  activity 
in  seeing  to  it  that  the  qualification  cards  should  accompany 
the  soldiers  and  officers  to  France. 

INCLUSION     OF     EDUCATIONAL     AND     OCCUPA- 
TIONAL INFORMATION  IN  THE  SERVICE 
RECORD 

Previous  to  the  edition  of  the  Service  Record  (Form  No. 
29,  A.  G.  O.),'  dated  September  25,  1917,  there  had  been 
entered  on  these  records  the  soldier's  name,  address,  physical 
qualities,  vaccination  and  inoculation  history,  report  of  assign- 
ment, record  of  prior  service  and  of  current  enlistment,  mili- 
tary record,  clothing  account  and  record  of  allotments  and 
deposits.  There  had  been  no  place  to  enter  educational  or 


ADJUTANT  GENERAL'S  OFFICE  591 

occupational  qualifications.  Instead  a  duplicate  qualification 
card  on  buff  stock  was  provided  company  commanders.  It 
was  felt  that  the  Service  Record  was  not  complete  without 
some  information  concerning  a  man's  education  and  his  occu- 
pational experience  and  skill,  and  that  by  the  inclusion  of  this 
material  the  buff  qualification  cards  could  be  dispensed  with, 
thereby  eliminating  considerable  paper  work.  Brigadier  Gen- 
eral (later  Major  General)  P.  C.  Harris  was  engaged  at  the 
time  in  revising  the  Service  Record  and  when  the  matter  was 
presented,  he  provided  space  in  the  four  page  insert,  pages 
6a-6d,  for  recording  educational  and  occupational  history.  It 
was  further  planned  that  this  material  would  be  copied  from 
the  qualification  card. 

FILES   OF  OFFICERS'   QUALIFICATION  CARDS 

General  Orders  No.  46,  War  Department,  May  9,  1918,  pro- 
vided that  duplicate  Officers'  Qualification  Cards  for  all  line 
officers  should  be  filed  in  The  Adjutant  General's  Office.  These 
files  were  kept,  at  first,  in  the  Efficiency  Section,  Officers'  Divi- 
sion, A.  G.  O.,  together  with  files  containing  other  records  of 
officers.  It  was  soon  demonstrated  that  the  officers'  qualifica- 
tion cards  would  require  a  section  by  themselves  and  a  staff  to 
handle  them  headed  by  someone  familiar  with  the  personnel 
system,  in  order  to  keep  the  files  accurate  and  up  to  date.  In 
August  the  files  of  officers'  cards  were  accordingly  moved  to 
the  halls  outside  of  Room  528,  as  there  was  no  one  room 
available.  At  first,  Mr.  Gabriel  I.  Lewis,  an  associate  of  the 
Committee,  had  charge  of  the  files,  with  a  large  force  of  clerks 
to  do  the  classifying,  tabbing  and  filing.  Later,  early  in 
October,  Mr.  C.  F.  Axelson  took  charge  with  Mr.  G.  M. 
Leonard  as  assistant.  Both  of  these  men  were  formerly  per- 
sonnel supervisors  in  the  camps  and  had  a  thorough  working 
knowledge  of  the  classification  system.  The  section  worked 
under  great  difficulties,  on  account  of  being  located  in  the 
open  halls ;  the  light  was  poor,  the  ventilation  was  poor,  there 
was  no  heat,  and  there  was  constant  disturbance  caused  by 


592 


people  passing  to  and  fro.  Not  until  after  November  11, 
however,  was  it  possible  to  secure  rooms  for  the  files  and  the 
staff  handling  them.  When,  owing  to  the  signing  of  the 
armistice,  all  drafts  were  cancelled,  it  was  possible  gradually 
to  cut  down  the  force  of  the  central  distributing  office,  and 
no  sooner  did  they  vacate  one  room  than  files  of  officers'  cards 
were  moved  in  until  now  the  files  are  completely  housed  in 
three  rooms. 

At  this  time  the  following  procedure  was  carried  out: 

(a)  Each  card  was  checked  to  make  sure  that  it  belonged 
in  The  Adjutant  General's  Department  and  not  in  one  of  the 
staff  corps.     If  not,  it  was  sent  to  proper  destination. 

(b)  Files  were  searched  for  duplicates.    If  one  or  more 
was  found,  all  valuable  information,  e.  g.  ratings,  experience, 
etc.,   was   included   on    one   card,   and    this    card     properly 
classified,  tabbed,  and  placed  in  a  "live  file." 

(c)  Ratings  were  copied  upon  receipt  of  quarterly  rating 
reports  after  proper  numbering  and  indexing  of  reports  had 
been   done.      When   a   rating  report  was   received   for   which 
there  was  no  card  on  file,  a  letter  was  sent  to  the  camp  with 
instructions  that  a  duplicate  be  forwarded. 

(d)  The   final  card   of  all   discharged    line    officers    was 
checked  against  cards  in  live  files  and  omitted  ratings,  etc., 
transcribed,  so  that  the  final  card  would  contain  all  the  useful 
information  available  about  the  former  officer. 

(e)  As  discharged  officers  were  commissioned  in  the  Re- 
serve Corps,  their  cards  were  separated  from  those  of  other 
discharged  officers  and  placed  in  a  separate  file. 

At  present  (March  20,  1919)  the  files  contain  nearly 
200,000  cards  and  more  are  pouring  in.  Before  demobilization 
of  the  Army  is  completed  it  is  expected  that  over  400,000 
cards  will  be  collected,  or  an  average  of  over  two  (original  and 
one  or  more  duplicates)  for  each  officer.  This  section  of  the 
Committee's  work  will  therefore  be  maintained  for  some  time 
after  the  discontinuance  of  the  other  sections.  Eventually  the 
files  will  probably  be  maintained  by  The  Adjutant  General's 


ADJUTANT  GENERAL'S  OFFICE  593 

Department    but    particularly    accessible    to    the    Personnel 
Branch,  General  Staff. 

REPORTS    TO    THE    ADJUTANT    GENERAL    CON- 

CERNING  ADJUTANT'S  WORK  IN  THE  A.  E.  F. 

AND  BRITISH  ARMY 

In  connection  with  the  installation  of  personnel  work  in 
the  A.  E.  F.  several  representatives  of  the  Committee  went 
abroad.  They  reported  to  The  Adjutant  General  concerning 
the  British  system  of  recruiting  and  personnel  work,  British 
trade  tests,  the  British  War  Office's  daily  telegraphic  con- 
ference, plans  for  demobilization  in  Great  Britain,  personnel 
work  in  the  A.  E.  F.,  etc. 


CHAPTER  45 

CO  OPERATION  WITH  THE  PROVOST 
MARSHAL  GENERAL'S  OFFICE 

During  the  early  part  of  the  summer  of  1917  it  became 
apparent  not  only  that  the  needs  of  the  Army  for  specialists 
of  various  kinds  could  not  be  met  by  any  extant  devices  for 
supplying  promptly  such  specialists  from  the  draft,  but  also 
that  under  the  actual  operation  of  the  draft  highly  essential 
men  in  certain  important  industries  were  being  taken  into  the 
Army  and  often  assigned  to  work  for  which  they  were  ill  fitted. 
Although  in  theory  the  draft  boards  were  given  authority  to 
discriminate  in  favor  of  certain  essential  industries,  the  early 
operation  of  the  boards  was  irregular,  eccentric,  and  often  ill- 
considered.  While  the  main  work  of  the  Committee  on 
Classification  of  Personnel  was  directed  to  the  effective 
classification  and  distribution  of  men  already  in  the  Army, 
certain  members  of  the  Committee  gave  attention  to  possible 
methods  of  improving  the  selective  process  of  the  draft. 

It  was  thought  that,  with  a  more  adequate  system  whereby 
information  could  be  quickly  codified  at  Washington  regard- 
ing the  presence  of  large  groups  of  expert  men  of  any  given 
kind  in  a  given  region,  the  needs  of  the  Army  might  be  much 
more  promptly  met  by  immediately  sending  such  groups  to 
points  where  they  were  needed  than  by  waiting  for  the  slow 
operation  of  classification  of  the  men  after  they  had  been 
delivered  to  the  various  cantonments  from  which  they  would 
then  have  to  be  re-assembled  at  some  other  point.  Moreover, 
it  was  believed  that  in  this  way  a  more  intelligent  check  could 
be  maintained  upon  the  relative  invasion  of  specific  groups  of 
industries  or  occupations  and  that  a  more  reasonable  balance 
could  thus  be  observed  between  the  needs  of  the  Army,  on 

594 


PROVOST   MARSHAL'S    OFFICE  595 

the  one  hand,  and  the  needs  of  industry,  commerce  and  agri- 
culture on  the  other. 

Conferences  were  held  with  members  of  the  Council  of 
National  Defense,  with  the  Assistant  Secretary  of  the  Depart- 
ment of  Labor,  with  representatives  of  the  Emergency  Fleet 
Corporation,  with  representatives  of  the  Census,  and  with 
members  of  the  Provost  Marshal  General's  Office,  particularly 
Colonel  (later  Brigadier  General)  H.  S.  Johnson,  Major 
F.  C.  Woodward,  Major  (later  Colonel)  J.  S.  Easby-Smith, 
and  Major  (later  Colonel}  J.  H.  Wigmore.  These  confer- 
ences were  designed: 

1.  To    ascertain    from    men    competently    acquainted 
with  the  industrial  situation,  the  type  of  measure  best 
designed  to  secure  the  end  in  view; 

2.  To  gain  from  the  Department  of  Labor  and  the 
representatives  of  the  Census  impressions    of    the    best 
technique  for  accomplishing  the  desired  end;  and 

3.  To  secure  from    the    Provost    Marshal    General's 
Office  a  knowledge  of  the  requirements  and  limitations  of 
the  law  under  which  any  such  measures  would  necessarily 
be  promulgated. 

As  the  outcome  of  these  several  conferences  the  conclusion 
was  reached  that,  the  most  effective  method  of  gaining  the  type 
of  information  desired  was  to  operate  on  the  basis  of  a  ques- 
tionnaire to  be  filled  out  by  drafted  men  in  the  presence  of 
examiners  specially  trained  to  gather  the  required  informa- 
tion. It  was  believed  that  by  utilizing  the  State  Councils  of 
Defense  and  by  securing  the  co-operation  of  school  teachers 
a  very  large  number  of  sufficiently  skilled  record  takers  could 
be  supplied  to  the  Local  Boards  to  enable  the  securing  of  the 
necessary  data.  It  was  intended  to  establish  district  and  local 
coaching  schools  for  the  purpose  of  training  these  record 
takers. 

It  will  be  recalled  that  the  original  card  filled  out  by 
drafted  men  called  for  certain  occupational  information.  Ex- 


596 HISTORY  OF  PERSONNEL 

perience  quickly  showed,  however,  that  in  the  first  place  this 
information  was  hopelessly  inadequate  to  meet  the  Army 
needs,  and,  second,  that  there  was  no  effective  machinery  for 
organizing  even  such  information  as  came  in  through  these 
channels.  When  the  proposed  improvement  of  this  method 
was  broached  to  General  Crowder  by  Major  (later  Lt.  Col.) 
Grenville  Clark  and  Dr.  J.  R.  Angell  early  in  the  autumn  of 
1917,  the  Provost  Marshal  General  declined  to  give  any  con- 
sideration to  the  matter  whatever.  His  position  appeared  to 
be  that  the  pressing  necessity  was  to  put  into  the  cantonments 
the  largest  possible  number  of  men  in  the  least  possible  time. 
Moreover,  he  appeared  at  that  time  to  feel  no  concern  about 
the  effects  of  the  operation  of  the  draft  on  essential  industries. 

However,  with  the  passing  of  time  and  the  preparation  by 
the  subordinates  of  the  Provost  Marshal  General  of  a  new 
questionnaire  to  be  used  in  the  second  draft,  the  Committee 
was  informed  eight  hours  in  advance  of  the  closing  of  the 
proofs  for  the  printer  that  permission  would  be  given  to  intro- 
duce one  section  of  questions  regarding  industrial  and  occupa- 
tional matters  which  the  Committee  were  invited  to  formulate. 
Naturally,  the  result  of  this  much  belated  permission  was  of 
a  most  unsatisfactory  kind.  Nevertheless  the  Committee  did 
the  best  that  it  could  under  the  circumstances  and  supplied  a 
considerable  list  of  questions  from  which,  however,  the  repre- 
sentatives of  the  Provost  Marshal  General's  Office,  without 
consultation  with  the  Committee,  deleted  certain  of  the  entries 
which  the  Committee  considered  of  most  crucial  consequence. 

Eighty-seven  main  headings  were  utilized  with  fifty-four 
subdivisions,  corresponding  in  general  to  the  then  existing 
Index  of  Occupations.  They  were  printed  in  the  Question- 
naire under  the  following  caption: 

"Q.  10.  In  the  columns  below  draw  one  line  under 
those  occupations  at  which  you  have  worked:  draw  two 
lines  under  those  at  which  you  are  expert.  After  each 
2,  9,  5}  of  experience  you  have  had  in  that  occupation." 


PROVOST   MARSHAL'S   OFFICE  597 

The  list  appeared  as   follows,     (the    corresponding    CCP 
classification  code  being  given  at  the  extreme  right) : 


Years 


1 .  Accountant    

2.  Artist,  dramatic  and  otherwise, 

3.  Auto   and   gas   engineman 


(a)  Factory 

(b)  Garage    

(c)  Ignition  system 

(d)  Marine  engines 


4.  Auto  and  motor  truck  driver, 

5.  Baker    

6.  Band   Instrument    

7.  Barber  , 


37 

62 

24  &  25 
25s 
24g 
24m 
25m 

22  &  23 

40 

44 

45 


On  the  basis  of  this  suggestive  list  selective  service  men 
classified  themselves  according  to  civil  experience.  This  infor- 
mation was  transcribed  to  cards  and  filed  in  the  Provost  Mar- 
shal General's  Office  to  be  used  as  a  basis  for  drafting  men 
by  occupational  experience. 

The  list  was  expanded  to  about  400  headings  in  the  revised 
questionnaires  used  for  the  draft  of  men  from  18  to  45  years 
of  age.  This  second  list  as  published  was  substantially  the 
Index  of  Occupations  of  the  April  revision  except  that  many 
of  the  minor  sub-divisions  of  occupations  were  excluded. 
Moreover,  it  employed  the  CCP  code  system.  Note  the  in- 
structions and  first  few  headings. 

"Directions:- -Look  carefully  through  this  list.  The  main 
occupations  are  printed  in  black  letter  type:  then,  in  smaller 
type,  the  most  important  kinds  of  job  or  special  work  within 
each  occupation.  Each  job  or  special  work  has  a  key  num- 
ber and  letter  printed  after  it. — When  you  have  found  your 
occupation  and  job  on  the  list,  turn  to  the  Questionnaire,  page 
3,  question  5,  and  fill  out  the  blanks  with  the  names  of  your 
occupation  and  your  job  and  the  key  number  and  letter.  Do 
not  forget  to  enter  the  key  number  and  letter." 


598  HISTORY  OF  PERSONNEL 

Accountant — 

Certified  public  accountant  37-ac 

Cost  accountant  37-co 

General  37-g 
Airplane  Mechanic — 

Airplane   cloth   worker  76-ai 

Assembler  61 -a 

Engine  61-e 

Propeller  maker    (tester)  61-p 

Rigger  64-s 
etc. 

The  presence  of  this  standard  list  helped  measurably  in 
lending  the  13,000,000  selective  service  men  to  express  their 
occupational  experience  in  the  same  language,  which  was,  of 
course,  of  great  value  in  classifying  them. 

The  actual  handling  of  the  questionnaires,  the  classification 
of  drafted  men,  and  their  assignment  was  entirely  in  the 
hands  of  the  Provost  Marshal  General's  Office,  where  elabo- 
rate preparations  were  made  for  organizing  and  controlling 
the  information  thus  secured. 


COOPERATION  WITH  THE  MEDICAL 
DEPARTMENT 

Many  activities  of  the  Medical  Department  are  intimately 
interrelated  with  the  administration  of  Army  personnel.  One 
of  the  functions  of  the  medical  service  is  to"  examine  all  re- 
cruits and  to  classify  them  with  reference  to  both  physical 
and  mental  fitness  for  military  duty.  Soldiers  about  to  be 
transferred  from  one  camp  to  another  must  be  physically 
examined.  Convalescents  cannot  be  returned  to  their  units  or 
assigned  to  special  duty  until  their  physical  qualifications  for 
the  work  they  will  be  called  upon  to  do  have  been  deter- 
mined by  the  medical  officers.  Such  responsibilities  as  these 
are  so  closely  allied  to  the  work  of  the  personnel  organization 
that  the  closest  co-operation  is  essential  to  the  fullest  utiliza- 
tion of  available  man-power. 

It  is  not  within  the  scope  of  this  brief  chapter  to  recount 
in  detail  the  history  of  the  many  phases  of  personnel  activity 
in  which  the  Army  personnel  organization  co-operated  with 
the  Medical  Department.  The  story  is  interwoven  with  the 
accounts  given  elsewhere  in  this  volume,  of  the  procedure  of 
receiving  men  into  camp  and  the  steps  that  led  to  enormous 
simplifications  and  economies  in  this  complex  process  (Chap- 
ter 20)  ;  the  study  of  the  physical  requirements  of  various 
army  occupations  to  ascertain  where  effective  use  could  be 
made  of  men  physically  qualified  for  limited  service  only 
(Chapter  27)  and  the  elaboration  of  the  Development  Bat- 
talion plan,  as  a  means  of  saving  for  the  military  service 
thousands  of  recruits  who  otherwise  would  either  have  been 
discarded  as  unfit  or  have  remained  as  misfits  in  the  regular 
organizations,  a  hindrance  to  rapid  training  (Chapter  40). 

599 


600 HISTORY  OF  PERSONNEL 

Elsewhere,  too,  is  recorded  the  preparation,  by  the  Com- 
mittee on  Classification  of  Personnel,  of  the  special  qualifica- 
tion card  for  medical  officers,  and  the  compilation  of  tables 
of  occupational  needs  and  personnel  specifications  for  the 
Medical  Department.  But  the  peculiarly  intimate  relations 
that  existed  between  the  work  of  the  Committee  and  the 
Division  of  Psychology  of  the  Surgeon  General's  Office  must 
here  be  given  special  prominence. 

COOPERATION  WITH  THE  DIVISION  OF 
PSYCHOLOGY 

From  the  beginning  the  closest  personal  contact  existed 
between  the  psychologists  of  the  Surgeon  General's  Office 
and  the  Committee  on  Classification  of  Personnel.  Major 
R.  M.  Yerkes,  S.C.,  who  was  the  head  of  the  Division  of 
Psychology  throughout  the  entire  period  of  its  activities,  was 
also  one  of  the  original  twelve  members  of  the  Committee. 
Dr.  (later  Major)  L.  M.  Terman,  another  of  the  original 
members,  gave  his  full  time  during  the  early  weeks  of  the 
Committee's  existence  to  work  upon  the  methods  of  psycho- 
logical examining  of  recruits,  which  at  that  time  were  still  in 
a  somewhat  tentative  form.  Dr.  Thorndike  and  other  mem- 
bers of  the  Committee,  then  and  later,  also  helped  in  per- 
fecting those  methods  and  adapting  them  to  military  re- 
quirements. 

Perhaps  one  of  the  best  services  which  members  of  the 
Committee  were  able  to  render  to  the  Division  of  Psychology 
lay  in  interpreting  its  aims  and  values  to  officers  of  the  Gen- 
eral Staff  and  other  officials  of  the  War  Department  who 
were  skeptical  of  the  military  value  of  the  psychological  work 
and  who  hesitated  to  authorize  the  expenditures  of  money 
and  personnel  necessary  for  its  proper  functioning.  The 
work  of  psychological  examining  was  seriously  hampered  for 
many  months,  through  long  postponements  of  approval  of 
its  program,  and  more  than  once  it  was  threatened  with  ex- 
tinction through  the  hesitancy  of  some  war  plans  committee 


MEDICAL    COOPERATION  601 

or  other  high  authority  to  recognize  the  value  of  mental  test 
methods  in  sifting  out  the  mentally  unfit  and  in  disclosing 
superior  ability  among  recruits.  Eventually  the  Division  of 
Psychology  was  able  to  demonstrate  beyond  question  its  mili- 
tary usefulness.  During  the  final  months  of  mobilization  the 
psychological  examiners  in  all  the  great  camps  were  supply- 
ing the  company  and  regimental  commanders  and  the  officers 
in  charge  of  personnel  with  information  regarding  the  men- 
tality of  the  newly  arriving  recruits ;  and  this  information  was 
being  utilized  in  selecting  men  for  special  assignment  and  in 
'balancing'  the  various  units  so  as  to  insure  more  rapid  and 
uniform  progress  in  training. 

A  minor  but  important  phase  of  co-operation  developed 
in  connection  with  the  training  of  officers  for  assignment  to 
psychological  and  to  personnel  work.  Mr.  Weisiger,  Dr. 
Strong  and  other  representatives  of  the  Committee  on  Classi- 
fication of  Personnel  lectured  before  the  training  school  for 
psychological  examiners  at  Camp  Greenleaf  and  sought  to 
give  the  men  a  broad  survey  of  the  problem  of  personnel  ad- 
ministration, toward  the  solution  of  which  their  own  work 
was  to  contribute  an  integral  part.  Major  J.  W.  Hayes, 
S.C.,  in  turn  was  loaned  by  the  Division  of  Psychology  to 
direct  at  Newark  a  course  of  training  for  trade  test  officers. 
The  entire  program  of  personnel  classification,  trade  testing 
and  psychological  examining  was  essentially  one  complex 
undertaking,  aimed  to  find  out  as  promptly  and  exactly  as 
possible  where  each  recruit's  best  army  usefulness  lay.  It 
was  imperative  that  the  agencies  engaged  in  the  different 
phases  of  this  undertaking  should  understand  clearly  each 
other's  aims  and  methods,  and  work  together  for  the  com- 
mon end. 

Pathetic  tales  might  be  told  of  the  partial  failure  to  realize 
this  full  co-operation  during  the  early  months ;  of  psychologi- 
cal examiners  who  were  so  slow  in  reporting  the  results  of  their 
mental  measurements  that  the  recruits  had  left  camp  before 
their  records  were  available ;  and  of  personnel  officers  who  did 


602  HISTORY  OF  PERSONNEL 

not  even  know  where  on  the  qualification  card  the  intelligence 
score  was  supposed  to  be  recorded,  or  what  to  do  with  that 
information  after  they  had  it.  But  gradually  the  psycholo- 
gists became  organized  to  the  point  where  they  were  able 
to  make  their  examinations  as  rapidly  as  the  men  arrived  in 
camp;  and  the  personnel  officers  learned  the  value  of  the  in- 
telligence score  as  one  of  the  items  of  information  which  had 
real  significance  when  it  came  to  making  assignments  or 
selecting  men  for  special  training. 

In  bringing  about  this  better  mutual  understanding  be- 
tween personnel  officers  and  psychological  examiners  in  the 
camps,  Major  C.  S.  Yoakum,  S.C.,  rendered  service  of  con- 
spicuous value;  and  after  the  publication  of  Chapter  X  of 
the  Personnel  Manual,  (see  Chapter  X,  Volume  II)  in  the 
preparation  of  which  Major  Terman  and  Major  Yoakum  had 
the  chief  responsibility,  no  personnel  officer  had  any  further 
excuse  for  ignorance  of  the  uses  to  which  intelligence  data 
might  wisely  be  put. 

The  administration  of  personnel  classification  and  of  psy- 
chological examining  logically  belonged  together.  In  recount- 
ing the  history  of  the  development  of  the  army  personnel  sys- 
tem (in  Chapter  5)  it  was  pointed  out  that  only  the  accident 
of  historical  considerations  accounts  for  the  fact  that  the  psy- 
chological examining  was  developed  under  the  Surgeon  Gen- 
eral while  the  personnel  classification  was  administered  by 
The  Adjutant  General.  If  ever  America  is  again  called  upon 
to  mobilize  and  train  a  great  army  rapidly,  the  more  natural 
and  logical  plan  will  be  to  unite  the  personnel  classification, 
the  intelligence  examining  and  the  trade  testing  within  a 
single  personnel  organization.  These  are  all  aspects  of  a 
single  task,  the  determination  of  the  soldiers'  abilities  and 
greatest  military  usefulness. 

COOPERATION  WITH  THE  DIVISION  OF  PHYSICAL 
RECONSTRUCTION 

In  the  Fall  of  1918  the  Medical  Department  was  making 

enormous  preparations  to  take  care  of  the  wounded  and  dis- 

• 


MEDICAL    COOPERATION  603 

abled  who  were  to  be  brought  to  America  from  the  battle- 
fields of  France  during  the  winter  and  spring  of  1919. 
Happily  the  number  of  casualties  was  relatively  slight  in 
comparison  with  what  it  would  have  been  if  the  burden  of 
active  fighting,  had  continued.  But  even  as  it  was,  many 
thousands  of  our  soldiers  came  back  to  America  convalescing 
from  injuries  which  would  temporarily  or  permanently  han- 
dicap them  in  the  further  pursuit  of  the  civilian  occupations 
with  which  they  were  familiar. 

The  task  of  training  these  handicapped  soldiers  and  making 
them  capable  of  independent  self  support  fell  to  the  Division 
of  Physical  Reconstruction,  of  the  Surgeon  General's  Office. 
One  feature  of  this  program  included  a  school  at  Camp 
Greenleaf,  for  the  training  of  officers  and  men  for  the  physi- 
cal reconstruction  service.  To  this  school  and  to  all  the 
Physical  Reconstruction  Hospitals,  the  Committee  on  Classi- 
fication of  Personnel  sent  supplies  of  trade  test  materials 
for  use  in  connection  with  the  interviewing  and  classifying 
of  the  convalescent  soldiers  before  decisions  were  made  re- 
garding their  courses  of  occupational  training;  and  after  the 
armistice  a  considerable  number  of  officers  and  men  expe- 
rienced in  trade  testing  were  transferred  from  the  Adjutant 
General's  Department  to  the  Division  of  Physical  Recon- 
struction, to  help  in  the  work  of  occupational  reclassification 
and  vocational  counsel. 


CHAPTER  47 

COOPERATION    WITH    THE    AVIATION    SEC- 
TION, SIGNAL  CORPS  AND  DEPARTMENT 
OF  MILITARY  AERONAUTICS 

From  its  inception  the  Committee  has  co-operated  with  the 
Personnel  Section  of  the  Air  Service  in  the  study  of  the 
selection  and  classification  of  officers  and,  to  a  lesser  degree, 
of  enlisted  men.  Dr.  E.  L.  Thorndike  had  charge  of  this 
section  and  is  responsible  for  all  that  was  achieved. 

The  following  brief  abstracts  of  reports  represent  some  of 
the  main  lines  of  investigations  carried  on  and  action  sug- 
gested. The  suggestions  in  practically  every  case  commended 
themselves  to  the  military  authorities. 

A  STATISTICAL  STUDY  OF  A  THOUSAND  REPRE- 
SENTATIVE CASES  OF  MEN  ACCEPTED  BY 
THE  EXAMINING  BOARDS  AS  PROSPEC- 
TIVE  OFFICERS   ON   A  FLYING 
STATUS 

Age,  education,  civilian  salary,  athletic  achievement  and 
other  facts  obtainable  were  secured  from  the  cadets'  applica- 
tion blanks,  and  presented  in  tables  and  diagrams  of  the  sort 
illustrated  on  the  following  pages. 


604 


AERONAUTICS  COOPERATION 


605 


I55J- 


11  20   2l    21  23  It  25  26  27  28  2*  30  3l   32+ 
Age 

Table  4.     Age  of  1000  Aviation  Cadets  in  Ground  Schools. 
At  age  19  there  were    25  Cadets. 


20 
21 
22 
23 
24 
25 
26 
27 
28 
29 
30 


or  over 


56 

131 

163 

156 

123 

111 

61 

67 

45 

32 

30 


606 


HISTORY' OF  PERSONNEL 


15%- 


I l-l'/o 


-2-1     HI    H2   H3Gr.H  O    C2  C3  CrC  C+ 
School    Education 

Table  5.     Education  of  1000  Aviation  Cadets  in  Ground  Schools. 

A  common  school  in  the  case  of     14  Cadets. 

1  year  of  high  school            "      "      8  " 

2  years  of  high  school          "      "    42  " 

3  years  of  high  school           "      "     30  " 
High  school  graduation         "      "  220  " 
H.  S.  Graduation  plus  1  year   "  139  " 
H.  S.  Graduation  plus  2  years"  168  " 
H.  S.  Graduation  plus  3  years  "  148  " 
College  graduation  (or 

equivalent)                                  153  " 
College  graduation,  plus 


1  year  or  more, 


28 


AERONAUTICS  COOPERATION 


607 


I — 1 


Table  6. 


/S    10    IS  25  25  30  35  40  HS   50  S5  60 


60 


Reported  Weekly  Earnings  of   1000   Aviation  Cadets   in 
Ground  Schools.1 


Less  than  $13 
$13  to  $18 
$18  to  $23 
$23  to  $28 
$28  to  $33 
$33  to  $38 
$38  to  $43 
$43  to  $48 
$48  to  $53 
$63  to  $58 
$58  to  $63 
Over  $63 


by  58  cadets. 

"  104  " 

"  185  " 

"  255  " 

"  131  " 

"  71  " 

«  47  " 

"  19  " 

"  65  " 

«  8  « 

"  17  " 

"  40  " 


'About  one-fifth  of  the  cadets  make  no  report  of  earnings.  Most  of 
these  entered  the  service  directly  from  school  or  college.  They  are  not  In- 
cluded In  Table  3. 


HISTORY  OF  PERSONNEL 


The.  above  tables  are  on  the  basis  of  over  a  thousand  cases 
taken  at  random  from  the  entire  enrolment  at  the  ground 
schools.  They  may  be  accepted  as  substantially  a  correct 
picture  of  the  entire  enrolment.  They  err,  if  at  all,  in  the 
direction  of  over-estimating  amounts  of  education  and  salary. 
The  data,  being  supplied  by  the  men  themselves,  are  subject 
to  any  errors  made  by  them;  and  these  errors  may  tend  on 
the  whole  to  give  too  favorable  measures  of  the  men. 

The  facts  as  to  education  and  wage  suggest  that  an  impor- 
tant change  in  policy  ought  perhaps  to  be  considered.  This 
is  the  restriction  of  commissions  to  a  selection  of  the  men  who 
are  superior  officer  material,  and  the  retention  of  the  men  who 
are  good  flyers  but  not  good  officer  material  on  a  status  of 
lesser  dignity. 

The  facts  also  suggest  that  during  the  period  of  training 
at  the  ground  school,  a  smaller  allowance  than  that  now  given 
might  have  a  better  effect  in  getting  good  men  into  the  service 
and  a  better  effect  on  their  progress  in  the  service.  For  a 
man  with  only  a  high  school  training  (or  that  plus  a  year  in 
some  inferior  school)  who  is  earning  in  these  times  of  high 
wages  less  than  $100  a  month,  the  aviation  service  may  be  a 
financial  temptation,  rather  than  an  appeal  to  patriotism, 
adventure,  or  interest  in  aviation.  Also  the  fact  that  he  has 
more  money  to  spend  than  he  has  ever  had  before  is  likely 
to  distract  him  from  work  and  endanger  his  health. 

ON  THE  QUALITIES  ASSOCIATED  WITH  SUCCESS 

IN  THE  SCHOOLS  OF  MILITARY 

AERONAUTICS 

The  first  stage  in  the  progress  of  a  flyer  toward  actual 
military  service  at  the  front  was  a  course  of  study  on  the 
ground,  including  general  military  subjects  and  special 
courses  in  signalling,  gunnery,  engines,  theory  of  flight,  and 
other  work  relevant  to  the  work  of  a  military  aviator.  A 
large  fraction  of  the  men  accepted  by  the  examining  boards 
failed  in  this  work ;  and  it  was  desired  to  reduce  this  wastage. 


AERONAUTICS  COOPERATION  609 

Also  there  was  some  doubt  concerning  just  what  qualities  of 
intellect  and  manhood  these  schools  did  require. 

A  thousand  cadets  in  the  ground  schools  were  taken  for 
study.  The  entire  record  of  each  man  throughout  his  course 
at  the  ground  school  was  copied  off  from  the  weekly  report 
sheets  filed  by  the  school.  Co-efficients  of  correlation  were 
computed  showing  the  significance  of  age,  amount  of  educa- 
tion, rate  of  progress  through  school,  etc.,  etc.,  for  success 
in  the  work  of  the  ground  school.  Among  the  main  results 
were  the  following. 

Age.  Within  the  group  of  men  accepted  by  the  examining 
boards,  age  makes  no  appreciable  difference  to  success  in  the 
ground  schools.  There  will  be  as  many  brilliant  records  and 
as  many  discharges  per  hundred  of  the  youngest  as  there 
will  be  per  hundred  of  the  oldest.  In  all  probability,  if  the 
boards  acted  with  as  much  discretion  as  in  the  past  in  main- 
taining their  standards  other  than  age,  young  men  of  20,  or 
19,  could  be  admitted  in  large  numbers  without  appreciable 
deterioration  in  the  work  of  the  ground  schools.  There  would 
indeed  be  just  as  much  probability  of  improvement  as  of 
deterioration. 

Amount  of  Education.  Amount  of  education  is  prophetic 
of  success  in  the  ground  schools,  but  not  so  much  so  as  the 
instructing  staffs  of  these  schools  probably  think.  The  cor- 
respondence between  amount  of  education  as  reported  by  a 
man  and  his  average  mark  in  the  ground  school  work  in 
engines,  gunnery,  signalling,  theory  of  flight,  etc.,  (these  sub- 
jects being  given  weight  according  to  the  opinions  of  those 
in  authority)  is  .35.  That  is,  two-thirds  of  the  causes  of  his 
average  mark  in  the  ground  school  course  lie  outside  of  those 
taken  account  of  by  the  amount  of  education  which  he  reports. 
Consequently,  although  we  should  have  fewer  failures  per 
hundred  if  we  admitted  to  the  ground  school  men  who  had, 
say,  two  years  of  college  or  its  equivalent,  the  reduction 
would  not  be  great,  and  the  loss  of  the  many  good  men  who 
would  be  barred  out  would  be  a  very  serious  matter. 


610 HISTORY  OF  PERSONNEL 

It  should  be  noted  that  the  reports  made  by  instructors  in 
the  ground  schools  concerning  the  causes  of  failure  and  con- 
sequent discharge  are  almost  certainly  subject  to  two  fallacies 
found  almost  everywhere  in  educational  reports,  namely,  (1) 
the  assumption  that  inadequate  education  is  the  cause  of  what 
is  really  due  to  lack  of  intrinsic  ability,  and  (2)  incomplete 
survey  of  the  facts.  A  teacher  in  the  ground  school  will 
probably  attribute  failure  to  inadequate  education  four  times 
out  of  five ;  but  it  is  a  demonstrable  fact  that  three  out  of 
four  students  with  only  a  high  school  education  do  satisfac- 
tory work  in  the  ground  school. 

Rate  of  Progress  in  School.  The  reported  age  at  which  a 
pupil  enters  high  school  (taken  conversely)  corresponds  to 
an  extent  of  .15— .02  with  achievement  in  the  ground  school. 

Reported  Class  Standing  in  the  Last  Year  of  School. 
Question  12  of  the  blank  is  as  follows: 

"If  you  attended  a  college  or  professional  school  of 
engineering,  answer  the  following  questions: 

To  the  best  of  my  knowledge,  my  rank  in  class  during 
my  last  year  in  school  was  (put  a  cross  [X]  under 
the  approximate  rank) : 


First  Tenth 

2d 

3d 

4th 

5th 

of  Class 

Tenth 

Tenth 

Tenth 

Tenth 

6th 

7th 

8th 

9th 

Lowest 

Tenth 

Tenth 

Tenth 

Tenth 

Tenth 

The  replies  to  this  are  far  from  reliable,  but  in  spite  of 
this  the  item  is  of  some  significance,  there  being  a  correspon- 
dence of  about  .20  between  reported  relative  position  in  class 
and  achievement  in  the  ground  school.  If  the  item  were 
made  free  from  error  by  being  furnished  by  the  school  in 
question  instead  of  the  candidate,  the  correspondence  would 
probably  be  nearly  .30. 

Salary,    at    Last    Position.     Taken    by    itself,    the    salary 


AERONAUTICS  COOPERATION  61 1 

received  by  a  man  is  of  zero  significance  for  success  in  the 
ground  school.  Men  receiving  $40  a  week  do  no  better  than 
men  receiving  $20;  men  receiving  $30  a  week  do  no  better 
than  men  receiving  $15.1 

Social  Status:  Occupation  of  Father.  In  many  cases  the 
social  status  of  the  candidate  cannot  be  determined  from  the 
facts  of  record;  but  enough  cases  can  be  found  of  sons  of  (a) 
professional  men,  (b)  mechanics  and  tradesmen  and  (c) 
clerks  and  salesmen  to  justify  comparison. 

There  is  a  very,  very  slight  inferiority  of  the  sons  of  clerks 
and  salesmen  in  the  work  of  the  ground  schools,  but  the  dif- 
ference is  of  no  practical  consequence,  being  smaller  than  its 
own  probable  error. 

It  may  be  noted  that  by  the  ratings  of  the  instructors  at 
the  flying  schools  for  "promise  as  a  military  aviator  all  things 
considered,"  the  sons  of  mechanics,  tradesmen,  clerks  and 
salesmen  are  poorer  material  than  the  sons  of  professional 
men,  engineers,  bankers  and  manufacturers. 

Candidate's  Statement  of  His  Proficiency  in  Work  Related 
to  that  of  the  Signal  Corps.  Question  15  of  the  application 
blank  is  as  follows: 

"Underscore  once  each  of  the  following  in  which  you  have 
had  experience;  underscore  twice  those  in  which  you  are 
proficient;  place  a  cross  (X)  after  those  whose  theory  you 
have  studied:  Accounting  (  );  aviation  (  );  automobile 
driving  (  ) ;  automobile  construction  (  ) ;  automobile 
repair  (  )  ;  carpentry  (  )  ;  carrier  pigeons  (  )  ;  electrical 
wiring  (  ) ;  electrical  equipment  (  ) ;  line  construction 
(  )  :  machine  construction  (  ) ;  machine  repairing  (  )  ; 
map  making  (  )  ;  mechanical  drawing  (  )  ;  photography, 
still  pictures  (  ) ;  photography,  moving  pictures  (  ) ; 
printing  (  )  :  radio  apparatus  (  )  ;  submarine  cable  work 


'It  is  possible  that  this  general  zero  effect  Is  compounded  of  two 
opposite  tendencies,  (A)  for  men  of  little  education  to  earn  more  at  the 
ages  of  20  to  25  than  college  graduates  do,  and  by  virtue  of  their  less 
education  to  do  less  well  in  the  ground  school,  and  (B)  for  men  of  equal 
education  to  do  better  in  the  ground  schools  if  they  are  of  the  type  that  Is 
successful  in  a  worldly  sense. 


612  HISTORY  OF  PERSONNEL 

(  )  ;  store-keeping  (  )  ;  surveying  (  )  ;  telegraphy  (  )  ; 
teaching  (  )  ;  visual  signaling  (  )  ;  add  any  other  occupa- 
tions that  seem  important  " 

If  we  credit  a  candidate  5  for  each  "proficiency/'  and  1 
for  each  "experience"  or  "theory  studied/'1  and  add  the 
credits  there  obtained,  and  compare  the  resulting  scores  with 
his  achievement  in  the  ground  schools,  we  find  a  slight  advan- 
tage for  those  scoring  high.  The  correspondence  is  slight 
(+.15). 

Experience  in  Automobile  Driving  and  Repair,  as  Reported 
by  the  Candidate.  The  correspondence  between  the  candi- 
date's statement  of  his  experience  in  driving  and  repairing 
automobiles  and  his  achievement  in  the  ground  school  course 
in  engines  is  slight  (.15).  If  the  examining  boards  for  one 
month  accepted  only  men  who  claimed  to  know  nothing  about 
driving  and  repairing  automobiles,  and  for  the  next  month 
only  men  who  claimed  to  be  proficient  in  both,  there  would 
be  only  a  moderate  difference  in  the  achievement  of  the  two 
groups  even  in  the  work  on  engines. 

The  Interest  in  and  Ability  at  Physical  Science,  (Pure  and 
Applied}  J'ersus  the  Interest  in  and  Ability  at  the  "Human- 
ities" and  Biological  Sciences.  Question  11  of  the  blank  is 
as  follows: 

"Give  names  of  the  three  studies  in  which  you  did  the 
best  work  in  the  last  two  years  of  school." 

If  we  give  a  credit  of  (+1)  to  a  candidate  for  an  entry  of 
physics  or  chemistry  or  any  engineering  subject,  and  a  penalty 
of  ( — 1)  for  an  entry  of  Latin,  English,  History,  Philosophy, 
Anthropology,  Language  and  the  like,  we  have  scores  running 
from  -1-3  to  — 3.  There  is  a  correspondence  of  .28  between 
this  score  and  achievement  in  the  ground  school. 

Conclusion.  On  the  whole  it  is  evident  that  success  in  the 
work  of  the  ground  school  depends  largely  upon  special 


'Substantially  the  same  result  Is  obtained  If  a  "proflcieircy"  is  scored 
2  or  3  or  4  instead  of  5  times  as  much  as  an  "experience"  or  "theory 
studied." 


AERONAUTICS  COOPERATION  613 

interest  in  and  ability  at  that  special  work,  and  cannot  be 
prophesied  at  all  closely  from  a  candidate's  amount  of  educa- 
tion, or  his  statements  concerning  the  matters  specified  in 
the  application  blank.  The  most  important  single  symptom  is 
amount  of  education,  the  next  most  important  are  rate  of 
progress  in  school,  class  standing,  and  interest  in  and  ability 
at  studies  of  the  physical  sciences.  If  the  examining  boards 
reject  candidates  of,  say,  only  a  high  school  education,  they 
will  reduce  the  number  of  discharges  from  the  ground  school, 
but  they  will  also  thereby  cut  out  many  of  its  most  promising 
men. 

It  must  also  be  remembered  that  the  ground  schools  are 
not  ends  in  themselves,  but  means  toward  the  production  of 
competent  pilots,  scouts,  fighters,  bombers,  etc.;  and  that 
over-emphasis  by  examining  boards  on  the  academic  qualifica- 
tions is  likely  to  admit  men  less  promising  in  respect  to 
courage,  nerve,  zeal  for  risk  and  the  like. 

The  selection  of  candidates  by  the  examining  boards  should 
be  primarily  to  secure  men  who  will  succeed  at  the  front. 
Success,  at  the  ground  school  and  success  at  the  flying  school 
are  significant  only  in  so  far  as  they  are  prophetic  of  success 
at  the  front.1  It  is  better  to  send  a  hundred  men  to  ground 
school  of  whom  twenty-five  fail  there  and  seventy-five  make 
competent  military  aviators  at  the  front,  than  to  send  a  hun- 
dred who  all  pass  the  ground  school  requirements  but  of  whom 
only  fifty  make  competent  rrUitary  aviators  at  the  front. 

As  a  practical  matter,  then,  the  selection  of  candidates  by 
the  examining  boards  should  be  such  as  to  furnish  the  best 
possible  men  for  the  front  with  the  least  possible  wastage  in 
the  ground  schools  and  flying  schools.  We  can  devise  a  sys- 
tem of  credits  for  amount  of  education,  reported  class  stand- 
ing, rate  of  progress  through  school  and  preferred  subjects 
of  study,  etc.,  which  would  make  the  selection  of  candidates 
very  much  more  efficient  than  it  now  is  so  far  as  the  ground 


1  Or,  -°t>  some  cases,  of  success  as  teachers  of  flying,  marksmanship,  etc. 


614  HISTORY  OF  PERSONNEL 

schools  alone  are  concerned,  but  it  seems  better  to  plan  the 
scheme  with  a  view  to  work  in  the  flying  schools  and  at  the 
front  as  well.  To  reduce  discharges  from,  and  increase  suc- 
cesses in  the  ground  school,  is  only  one  part  of  the  general 
problem. 

THE  AIR  SERVICE  TEST  OF  MENTAL  ALERTNESS 

The  facts  given  above  show  that  a  cadet  required  notable 
scholarly  ability  to  complete  satisfactorily  the  work  of  the 
ground  school.  At  the  same  time  it  seemed  undesirable  to 
pick  military  aviators  chiefly  on  academic  qualifications.  So 
the  attempt  was  made  to  provide  a  test  that  (1)  would  pick 
brainy  men  who  could  graduate  in  the  ground  school,  (2) 
would  not  pick,  however,  the  studious  type  at  the  expense  of 
courage,  skill,  alertness  and  bodily  dexterity,  and  (3)  would 
in  fact  pick  for  success  at  the  flying  school  and  over  the  lines 
as  well  as  for  success  in  the  ground  schools. 

The  so-called  Thorndike  test  of  mental  alertness  was  the 
result.  This  was  composed  of  eight  of  the  regular  army  tests 
already  in  use  by  the  Division  of  Psychology  in  the  Office  of 
the  Surgeon  General,  plus  five  others.  The  regular  army 
tests  were,  however,  modified  by  being  made  harder  so  as  to 
fit  officer  material  rather  than  enlisted  men.  Also  fifteen 
forms  of  the  test,  of  equal  difficulty,  were  prepared  instead  of 
five,  so  that  a  new  form  could  be  given  every  two  weeks  to 
prevent  any  unfair  preparation  for  the  test.  Finally  the  tests 
were  so  arranged  that  they  could  be  given  by  the  examining 
boards  or  by  any  personnel  officer  after  an  hour's  study  of 
the  directions. 

These  tests  were  tried  out  with  five  hundred  cadets,  and 
the  correlations  and  partial  correlations  determined.  The 
test  was  shown  to  give  a  much  better  prophecy  of  success  in 
the  ground  school  than  amount  of  education  or  class  standing 
or  any  other  item  reported  by  the  candidate,  the  partial  cor- 
relation between  it  and  success  in  ground  school  being  three 
times  as  high  as  for  any  such  item.  A  prophecy  was  made 


615 


concerning  fifty  men  tested  on  their  third  day  .in  the  Prince- 
ton Ground  School.  Eight  men  were  named  as  likely  to  do 
poor  work:  of  these  eight,  six  were  discharged  from  the  school. 
Of  eleven  men  named  in  a  similar  prophecy  at  the  Ohio 
School  only  two  graduated  without  being  "set  back"  and  six 
failed  to  graduate  at  all. 

The  test  was  consequently  adopted  for  use  by  all  examining 
boards  and  remained  in  force  till  mobilization  ceased.  It  was 
shown,  in  connection  with  other  investigations  to  be  mentioned 
later,  to  be  useful  also  in  eliminating  men  who  would  fail  to 
learn  to  fly  well  enough  to  receive  the  R.  M.  A.  A  sample  of 
the  test  (which  amounted  to  a  booklet  of  12  8^x11  pages) 
is  shown  below. 

TEST  2 

Look  at  each  sentence.  Think  what  it  would  be  if  the  words  were 
put  in  the  right  order.  If  it  would  be  true,  draw  a  line  under  the 
word  true.  If  it  would  be  false,  draw  a  line  under  the  word  false. 

1.  health  necessary  camp  a  is  to  clean true          false 

2.  Germany  of  Wilson  king  is  England  and true          false 

3.  work  like  men  all true          false 

4.  water  cork  on  float  will  not true          false 

5.  iron  paper  made  of  is  filings true          false 

6.  tropics  is  in  the  produced  rubber true          false 

7.  fish  hunt  and  like  boys  to  never true          false 

8.  size  now  of  guns  use  are  great  in true          false 

9.  bushes  trees  roots  have  and  their  air  the  in true          false 

10.  Not  bees  lazy  and  are  ants  called true          false 

TEST  4 

Wrile  the  correct  answers  to  these  problems.  Use  the  margins 
of  the  pages  to  figure  on. 

1.  A  dealer  bought  some  mules  for  $800.    He  sold  them 

for  $1,000,  making  $40  on  each  mule.    How  many 

mules  were  there? Answer     (  ) 

2.  A  rectangular  bin  holds  400  cubic  feet  of  lime.     If 

the  bin  is  10  feet  long  and  5  feet  wide,  how  deep 

is  it? Answer     (  ) 


616  HISTORY  OF  PERSONNEL 

3.  A  recruit  spent  one-eighth  of  his  spare  change  for 

post  cards  and  four  times  as  much  for  a  box  of 
letter  paper,  and  then  had  90  cents  left.  How 
much  money  did  he  have  at  first? Answer  (  ) 

4.  If  3y2   tons  of  coal   cost  $21,  what  will   5y2   tons 

cost?   Answer     (  ) 

5.  A  ship  has  provisions  to  last  her  crew  of  500  men 

6  months.  How  long  would  they  last  1,200  men? 
Answer  (  ) 

6.  If  a  man  runs  a  hundred  yards  in  10  seconds,  how 

many  feet  does  he  run  in  a  fifth  of  a  second? 
Answer  (  ) 

7.  A  U-boat  makes  8  miles  an  hour  under  water  and 

15  miles  on  the  surface.  How  long  will  it  take 
to  cross  a  100-mile  channel,  if  it  has  to  go  two- 
fifths  of  the  way  under  water? Answer  (  ) 

8.  If  241  squads  of  men  are  to  dig  4,097  yards  of  trench, 

how  many  yards  must  be  dug  by  each  squad? 
Answer  (  ) 

9.  A   certain   division    contains   3,000   artillery,    15,000 

infantry,  and  1,000  cavalry.  If  each  branch  is 
expanded  proportionately  until  there  are  in  all 
20,900  men,  how  many  will  be  added  to  the 

artillery? Answer     (  ) 

10.  A  commission  house  which  had  already  supplied  1,897 
barrels  of  apples  to  a  cantonment  delivered  the 
rest  of  its  stock  to  29  mess  halls.  Each  mess  hall 
received  54  barrels.  What  was  the  total  number 
of  barrels  supplied? Answer  (  ) 

TEST  6 

In  each  of  the  sentences  below,  you  have  a  choice  among  four 
words.  Draw  a  line  under  the  one  of  these  four  words  which  makes 
the  truest  sentence. 

1.  Gas  engines  are  lubricated  by    gasoline    air    water    oil. 

2.  Buenos  Ayres  is  a  city  of    Spctin — Argentina — Brazil    Portugal. 

3.  The  Pittsburgh  team  are  called    Giants    Cubs    Pirates    Tigers. 

4.  The  howitzer  is  a  type  of    machine-gun    rifle    cannon    pistol. 

5.  The  Zeppelin  is  a     monoplane     biplane     dirigible    submarine. 

6.  An  irregular   four-sided  figure  is  called  a    scolium    trapezium 

parallelogram    pentagon. 

7.  From  Berlin  to  Petrograd  is  about    500  mi.    900  mi.     1,400  mi. 

1,900  mi. 


AERONAUTICS  COOPERATION  617 

8.  The  inventor  of  the  telegraph  was    Ampere    Edison    Farraday 

Morse. 

9.  If  the  two  sides  of  a  right  triangle  are  3  ft.  and  4»  ft,  the  hypot- 

enuse is  about    434  ft.    5  ft.    5%  ft.    5y2  ft. 
10.  The  color  of  bromine  vapor  is    violet    green    brown    white. 

ON  THE  QUALITIES  ASSOCIATED  WITH  SUCCESS 
IN  THE  TECHNIQUE  OF  FLYING 

After  graduating  from  a  School  of  Military  Aeronautics 
(so-called  ground  school)  a  flying  cadet  was  sent  to  an  Avia- 
tion School  (so-called  Flying  School)  where  he  passed 
through  various  stages  of  flying  instruction  and,  if  success- 
ful, receiving  his  rating  as  Reserve  Military  Aviator 
(R.  M.  A.)  and  commission.  Contrary  to  general  opinion  in 
the  early  months  of  the  war,  the  great  majority  of  young 
men  of  fair  intelligence,  courage  and  nervous  stability  who 
wished  to  learn  to  fly  could  do  so,  and  with  a  degree  of  skill 
that  secured  the  R.  M.  A.  Only  about  six  in  a  hundred  of  the 
men  sent  to  Aviation  Schools  were  so  lacking  in  "aptitude  for 
flying"  that  they  could  not  learn  at  all  or  learned  so  slowly 
that  they  were  not  allowed  to  continue.  The  direct  military 
wastage  was  therefore  not  great,  but  the  money  loss  was;  the 
average  expense  for  each  such  discarded  candidate  being 
variously  estimated  at  from  two  thousand  to  five  thousand 
dollars. 

Over  a  score  of  tests  possibly  prophetic  of  ability  to  learn 
to  fly  had  been  given  to  about  170  cadets  at  Boston  by  Drs. 
H.  E.  Burtt,  W.  R.  Miles  and  L.  T.  Troland,  and  at  San 
Diego  by  Dr.  G.  M.  Stratton,  and  at  Philadelphia  by  Dr. 
F.  N.  Maxfield. 

The  Committee  cooperated  in  securing  information  about 
the  relative  skill  of  these  individuals  as  flyers  and  in  com- 
puting correlations  between  skill  as  a  flier  and  score  obtained 
in  each  of  these  tests.  The  facts  gathered  by  Dr.  R.  P. 
Parsons  concerning  the  naval  aviators  tested  by  him  were 
also  studied.  It  was  shown  that  no  one  test  could  wisely  be 


618 


HISTORY  OF  PERSONNEL 


used  to  admit  or  exclude,  but  that  a  set  of  six  or  eight  tests, 
each  properly  weighted,  gave  promise  of  saving  much  money, 
and  of  expediting  the  training  of  fliers. 

In  February,  1918,  the  Committee  recommended  a  certain 
set  of  tests  for  a  thorough  tryout  with  a  hundred  excellent 
fliers,  a  hundred  relatively  poor  fliers  and  a  hundred  men  of 
known  flying  ability.  Captain  V.  A.  C.  Henmon  and  Captain 
Stratton  were  detailed  by  the  Air  Service  to  do  this  work 
with  a  member  of  the  Committee. 

Table  7.     Data  on  Flying  Ability  of  100  Cadets  at  Kelly  Field,  No.  2. 


Test  Scores 

Report  from                                                                               Average 
flying  school                       Notes  to  date  of                   dual  time 
p=:poor  g=good                           June  15                            of  others 

—75  or  worse 

PPPPPP 

2  suspended,  relieved  or  discharged.   15.50 

-50  to  -74 

PPPPPPg 

4          "                "                   "             11.16 

-25  to  -49 

PPPPPPP 

5          "                "                   "             10.17 

PPPPPPg 

0  to  -25 

PPPPggg 

9           "                "                    "              10.03 

PPPPggg 

PPPPggg 

PPPP 

0  to  +25 

PPggggg 

1           "                "                    "                9.19 

PPggggg 

ppggggg 

+25  to  +49 

pgggggg 

1  not  reported                                            9.23 

pgggggg 

Pgggg 

+50  to  +74         ggggggg 
+75  or  better     g 


7.50 
7.21 


The  results  of  the  tryout  were  worked  up  and  a  detailed 
report  made.  The  facts  indicated  a  correlation  of  about  .70 
between  success  in  the  flying  school  and  the  properly 
weighted  score  of  a  team  of  tests  composed  of  the  Stratton- 
Parsons  test  of  emotional  instability,  the  Stratton  test  of  per- 
ception of  tilt,  the  Miles  steadiness  test,  the  Thorndike  test 
of  mental  alertness  and  the  Kelly-Henmon  athletic  score, 
either  with  or  without  the  addition  of  certain  tests  of  reaction- 
times. 


AERONAUTICS  COOPERATION  619 

The  complete  team  of  tests  as  given  by  Captain  Henmon 
at  Kelly  Field  showed  the  following  results  for  the  hundred 
flyers  of  known  ability. 

Forty-five  cadets  untried  as  to  flying  ability  were  tested 
and  a  prophecy  submitted  naming  five  men  to  show  as  many 
discharges  for  inability  to  fly  as  all  the  other  forty.  This 
prophecy  was  borne  out  by  their  later  records. 

The  general  effect  of  the  test  was  computed  from  the  cor- 
relations obtained  to  be  as  follows: 

Suppose  10,000  men  are  accepted  on  the  present  basis  by 
the  examining  boards,  during  the  next  ten  months.  Call 
the  flying  ability  of  the  thousand  best  of  them  10,  call  the 
flying  ability  of  the  thousand  next  best  9,  call  the  flying 
ability  of  the  third  best  thousand  8,  and  so  on.  We  will 
have  obviously: 

Ability  1234  56  7  89          10 

Number  of  Men    1000    1000    1000    1000     1000     1000     1000     1000     1000     1000 

Suppose  the  team  of  tests  recommended  is  applied,  and 
1,000  men  are  rejected,  their  places  being  filled  by  other 
applicants.  The  tests  are  significant  of  ability  to  learn  to  fly 
to  such  an  extent  that  we  shall  cut  off  at  the  bottom  and  fill 
in  at  the  higher  levels  so  as  to  have: 

Ability  123  4  5  6  7         '  8  9  10 

Number  of  Men     696      865      967      1022     1057      1080     1094     1102 

(1)  The  average  flying  ability  is  thus  increased  by  8  per 
cent. 

(2)  The  very  poor  flyers  who  would  never  fly  at  all,  but 
simply  be  a  waste  of  time  and  money,  will  be  reduced 
by  half. 

(3)  The  army  will  get  this  higher  quality  of  flyers  quicker 
than  it  would  have  got  the  poorer  quality.     For  the 
tests  not  only  pick  the  men  who  will  be  rated  higher 
when  they  do  get  their  R.  M.  A.,  but  also  the  men  who 
will  get  it  sooner. 


620  HISTORY  OF  PERSONNEL 

(4)      These  gains  in  quality  and  speed  will  be  made  at  no 
cost   of  intelligence,  courage,   determination,   co-opera- 
tion, or  other  military  virtues.     On  the  contrary,  these 
will  be  somewhat  higher  in  the  men  who  rank  well  in 
the  tests.     Care  has  been  taken  to  make  sure  of  this. 
As  a  result,  four  special  personnel  units  were  constituted 
by  the  Air  Service  to  give  these  tests  to  candidates  and  to 
cadets  early  in  their  careers  at  the  Ground  Schools.     Captain 
Henmon  was  put  in  charge.     Captains  E.  L.  Wells,  D.  E. 
Rice  and  Burtt  assisted  him.     Research  to  improve  the  tests 
still   further  was   authorized  and  ample  facilities   were   pro- 
vided, Captain  Stratton  being  put  in  charge. 

ON  THE  QUALITIES  ASSOCIATED  WITH  GENERAL 
SUCCESS  AS  A  MILITARY  AVIATOR 

An  aviation  cadet's  course  of  study  in  the  ground  school 
and  his  learning  to  fly  at  the  flying  school  were  of  course  only 
means  to  the  end  of  successful  work  under  the  actual  con- 
ditions of  warfare.  The  examining  boards  had  as  their  real 
task,  not  simply  to  pick  men  who  could  graduate  from  a 
school  of  military  aeronautics  and  learn  to  fly  quickly  and 
well,  but  to  pick  men  who  would  help  most  to  win  the  war  at 
the  front.  To  make  their  selection  most  efficient  they  needed 
a  bill  of  specifications  based  on  the  qualities  found  to  be  posi- 
tively correlated  with  success  in  the  actual  work  of  a  military 
aviator. 

The  Committee  made  a  thorough  analysis  of  all  the  data 
available  concerning  men  successful  and  unsuccessful  as  mili- 
tary aviators,  as  fast  as  it  was  available,  and  of  the  opinions 
of  experts  from  England,  France  and  Italy.  Reports  of 
results  were  made  from  time  to  time.  Data  were  scanty, 
very  variable,  conflicting  and  inconclusive,  during  the  entire 
first  year  of  this  country's  participation  in  the  war. 

The  military  authorities  were  unable  to  get  specific  data 
from  fliers  of  known  success  at  the  front.  Consequently  there 
was  required  the  arduous  procedure  of  collating  them  from 


AERONAUTICS  COOPERATION  621 

Central  Files  and  from  the  records  of  examining  boards. 
The  facts  of  the  tables  below  were  thus  gradually  obtained. 
These  and  others  were  used  as  the  scientific  basis  for  the 
CCP  Plan  for  Selecting  and  Classifying  Officer  Material  in 
the  Students'  Array  Training  Corps,  recommended  in  Octo- 
ber, 1918.  (See  Chapter  41.)  The  Armistice  prevented  any 
checking  of  the  results  of  the  plan,  which  had  just  been  put 
into  action,  so  far  as  it  concerned  the  selection  of  pilots. 

Table  8.  The  Frequencies  of  Different  Amounts  of  Education  in 
Military  Aviators  of  High  and  Low  Ratings  for  Success.  H=high. 
L=Low.  D=discharged  or  transferred  because  of  lack  of  promise 
is  a  flyer.1 

Records  at  the  Front         Records  in  flying  schools 
Aces  H  L  H  L  D 

Less      than      high 

School  graduation.  9.7%  3.9%  6.9%  7.7%  11.7%  6.5% 
H.  S.  graduation  or 

H.    S.    graduation 

plus  1  year 27.3        22.1         18.6         32.5        32.4        36.1 

H.  S.  graduation  plus 

2  or  3  years 39.0        48.5        52.1         32.5        33.7        38.0 

College  graduation  or 

equivalent 22.0        25.5        22.3         27.3        22.3        19.4 

Total   100.0%  100.0%  100.0%   100.0%  100.0%  100.0% 

Number  of  cases 
from  which  p  e  r- 
centages  are  cal- 
culated    41  231  188  366  377  108 

>The  H  records  at  the  front  are  of  men  who  have  brought  down  enemy 
planes,  been  cited  or  decorated,  or  officially  reported  by  their  squadron 
commanders  as  being  In  the  upper  half  (approximately)  of  the,  group  for 
success  In  their  work. 

The  Li  records  at  the  front  are  of  men  who  were  imprisoned  without 
having  achieved  success  as  noted  above,  or  who  were  officially  reported  by 
their  squadron  commanders  as  being  In  the  lower  half  (approximately) 
of  the  group  for  success  In  their  work. 

The  H  records  In  flying  schools  are  of  men  who  were  reported  directly 
to  Dr.  Thorndlke  as  specially  competent  pilots,  or  as  In  the  top  quarter  for 
general  promise  as  a  military  aviator,  or  whose  official  ratings  as  pilots 
were  above  the  average  (for  the  rator  and  revisor  in  question). 

The  L  records  in  flying  schools  are  of  men  who  were  reported  directly 
to  Dr.  Thorndlke  aa  comparatively  poor  pilots,  or  as  In  the  bottom  quarter 
for  general  promise  as  a  military  aviator,  or  whose  official  ratings  as  pilots 
were  below  the  averages  (for  the  rator  and  revisor  in  question). 

The  D  records  are  of  men  who  were  relieved  from  Instruction  as  pilots 
because  of  lack  of  promise  as  a  flyer  through  Inability  to  learn  to  fly  or 
"loss  of  nerve." 


622 HISTORY  OF  PERSONNEL 

Table  9.  The  Frequencies  of  Different  Ages  in  Military  Aviators 
of  High  and  Low  Ratings  for  Success.  H  =  high.  L  —  low.  D  — 
discharged  or  transferred  because  of  lack  of  promise  as  a.  flyer. 

Records  from  the  Front    Records  from  flying  schools 
Aces  H  L  H  L  D 

Born    in    1892    or 

earlier 7.5        21.7        22.7        27.9         34.1         33.3 

Born  in   1893,  94  or 

95  47.5        52.«        53.5        48.5         38.6        43.9 

Born  in  1896  or  later     45.0        25.7        23.8        23.6         27.3        22.8 

Total   100.0%  100.0%  100.0%  100.0%  100.0%  100.0% 

Number    of    cases 

used  in  calculating 

percentages   40         230          198         369          381          114 

Table  10.  The  Frequencies  of  Different  Degrees  of  Athletic  Ability 
in  Military  Aviators  of  High  and  Low  Ratings  for  Success.  H=high. 
L=low.  D=discharged  or  transferred  because  of  lack  of  promise. 

Records  at  the  front    Records  at  the  flying  schools 
H  L  H  L  D 

Men  of  less  athletic 
ability  54.0  56.6  47.1  56.1  54.4 

Men  of  greater  athletic 

ability 46.0          43.4          52.9          43.9  45.6 

Total 100.0%     100.0%     100.0%     100.0%     100.0% 

Number  of  cases  used  in 
calculating  the  per- 
centages    74  53  316  312  90 

Table  11.  The  Frequencies  of  Different  Degrees  of  Ability  in 
Driving  an  Automobile  in  Military  Aviators  of  High  and  of  Ix>w 
Ratings  for  Success.  H,  L  and  D  mean  as  in  Tables  8  to  10. 

.  Ratings  from  the  front  and 

from  flying  schools  combined 

H  L  and  D 

Men  claiming  no  ability  with  automobile 

or  only  theoretical  knowledge 21.6  -  37.2 

Men  claiming  some  ability 37.8  38.1 

Men  claiming  full  proficiency 40.6  24.7 

Number  of  cases  used  in  calculating  the 

percentages 315  312 

Table  12.  The  Frequencies  of  Different  Salaries  in  Military 
Aviators  of  High  and  Low  Ratings  for  Success.  H,  L,  and  D 


I                       II 

Records  at  the       Records  In  flying 
front                         schools 

H             L             H           L             D 

III 

I  and  II 
Combined 
All 
All  H  L  &  D 

26.1 

26.1 

16.0 

17.5 

31.5 

17.9 

21.8 

39.1 

52.2 

40.8 

40.9 

29.6 

40.5 

40.6 

21.8 

13.0 

21.4 

21.1 

22.2 

21.4 

19.9 

13.0 

8.7 

21.8 

20.5 

16.7 

20.2 

17.7 

46 

46 

206 

171 

54 

252 

271 

AERONAUTICS  COOPERATION  623 

mean  respectively  high,  low,  and  discharged  or  transferred  because 
of  lack  of  promise. 


Under  $20  26.1 

$20  to  $29 39.1 

.$30  to  $39 21.8 

$40  or  more 13.0 

Number  of  cases 

Table  13.  The  Frequencies  of  Different  Amounts  of  Social 
Achievement  in  Military  Aviators  of  High  and  Low  Ratings  .for 
Success.  H,  L  and  D  mean  as  in  Tables  8  to  12. 

A11L 
All  H  and  D 

Low  in  Social  Achievement 30.8  34.8 

Medium  in  Social  Achievement 34.3  36.9 

High  in  Social  Achievement 34.9  28.3 

Number  of  cases 198  233 

Table  14.  The  Frequencies  of  Different  Ratings  for  Responsibility 
and  Leadership  in  Military  Aviators  of  High  and  Low  Ratings 
for  Success.  H,  L  and  D  have  meanings  as  in  Tables  8-13. 

All  L 
All  H  and  D 

Reporting  enterprises  requiring  little  respons- 
ility  and  leadership 17.2  21.0 

Reporting  enterprises  requiring  medium 
amounts 52.9  45.8 

Reporting  enterprises  requiring  much  responsi- 
bility and  leadership 29.9  33.3 

Number  of  cases  used  in  calculating  the  per- 
centages    274  319 

Table  15.  The  Frequencies  of  Different  Amounts  of  Previous  Mili- 
tary Training  in  Military  Aviators  of  High  and  Low  Ratings  for 
Success.  H,  L  and  D  have  meanings  as  in  Tables  8-14. 

Records  Records 

from  the  front  from  flying  schools 

H              L  H               L     L  and  D 

No  previous  military  training. .     42.4        38.5  39.7  33.2        36.8 

Little  previous  military  training    29.9        23.6  24.5  27.5        27.2 

Much  previous  military  training    27.7        37.9  35.8  39.3        36.0 

Number  of  cases..                      .   177         782  290  280         331 


624 


HISTORY  OF  PERSONNEL 


Table  16.  The  Frequencies  of  Different  Heights  in  Military 
Aviators  of .  High  and  of  Low  Ratings  for  Success.  H— High. 
L=Low.  D=discharged  or  transferred  because  of  lack  of  promise 
as  a  flyer. 

Records 

In  flying  schools 

H  L,  D 

10.8         19.8  27.5 

27.3        32.7  28.6 

31.6        27.1  27.6 

30.3        20.4  16.3 


Records 
at  the  front 

Under  5  ft.  7  in  

H 
14.1 

L 
15.0 
28.8 
35.3 
20.9 

43.8 
56.2 

67  or  68  in  

....    ...       28  8 

69  or  70  in  

33.2 

5  ft.  11  in.  or  over.  .  . 

23.9 

Under  69  in  

Aces 
48.6        42.9 
51.4        57.1 

69  in.  or  over.  . 

Number  of  cases  from 
which  percentages 
are  calculated  . 


205 


187 


38.1 
61.9 


333 


52.5 
47.5 


343 


56.1 
43.9 


98 


Table  17.  The  Frequencies  of  Different  Weights  in  Military 
Aviators  of  High  and  of  Low  Ratings  for  Success.  H  =  high. 
L  =  low.  D  —  discharged  or  transferred  because  of  lack  of  promise 
as  a  flyer. 

Records 
at  the  front 
H  L 

Under  140  Ib 23.2        32.1 

140  to  149 22.2        25.1 

150  to  159 30.4        23.0 

160  to  169 15.9         14.4 

170  or  over 8.2          5.4 

Number  of  cases  from  which 
percentages  are   calculated    207         187 


Records 
in  flying  schools 

H 

L 

D 

20.0 

29.9 

38.4 

26.0 

24.6 

25.3 

24.5 

23.1 

21.2 

15.8 

15.8 

11.1 

13.7 

6.5 

4.0 

335 


341 


99 


AERONAUTICS  COOPERATION  625 

Table  18.  The  Frequencies  of  Different  Degrees  of  "Stockiness" 
in  Military  Aviators  of  High  and  of  Low  Rank  for  Success.  H  = 
high.  L  =  low.  D  —  discharged  or  transferred  because  of  lack  of 
promise  as  a  flyer. 

Very  stocky 
(Ht.  in  in. 
divided  b  y 
cube  root  of 

weight       i  n  Records  at  the  front  Records  In  flying  schools 

H  L  H  L  D 

pounds    less 

than    126)...     15.0  15.71  ]      21.21  24.1  1 

Stocky     (128  34.4  131.9     I  L35.3  144.0     38.1 

or  129) 19.2  16.2  J  14.1J  19.9  J 

(Aces 
38.9) 

Average 
(+130       or 
131)   23.9  21.5  \  25.81  20.7 1 

h    r1  «* 

133)    22.2  20.4  13.8  J  18.4  J 

(Aces 

38.9) 

Slender      (134 


or    135).... 

12.61             14.71 

13.8  1               9.81 

Very     slender 

I  19.8            Ue.2 

1  25.1            L  16.9     19.0 

(136         or 

over)  

7.2  J             11.5  J 

11.3  J               7.1  J 

(Aces 

• 

22.2) 

Number    of 

cases     from 

which     per- 

centages are 

calculated   .  . 

.   167              191 

283                266                     42 

626 HISTORY  OF  PERSONNEL 

Percentages  from  front  and  flying  schools  averaged 
H  L 

Under  128  18.6  ]  19.9  ] 

\  34.8  \  38.0 

128   and   129 16.7  J  18.1  J 

130  and  131 24.8]  21.1] 

^42.8  [40.5 

132  and  133 18.0  J  19.6  J 

134  and  135 13.2]  12.2] 

J-22.4  ^21.5 

136  and  over 9.2  J  9.3  J 

Table  19.  The  Frequencies  of  Super-vision,  Normal  and  20/20 
Vision,  and  Vision  below  Normal  in  Military  Aviators  of  High 
and  of  Low  Ratings  for  Success.  H  =  high.  L  =  low.  D  =  dis- 
charged or  transferred  because  of  lack  of  promise  as  a  flyer. 

Records  Records  from 

from  the  front  the  flying  schools 

Aces  H             L,  H  L  D 

Vision  above  normal 30.3  29.7  31.9  45.8  48.7  28.9 

20/20  or  normal 63.6  64.4  58.2  51.4  47.5  68.4 

Vision  below  normal 6.1  5.9        9.9  2.8  3.8  2.6 

Vision  above  normal 33.3  29.7  32.6  43.0  45.0  26.9 

20/20  or  normal 60.6  63.5  61.7  54.2  48.8  71.1 

Vision  below  normal 6.1  6.8        5.7  2.8  6.2  0 

Number  of  cases  used   for 
above  percentages   36        118        141          72         80  38 

A  similar  result  is  obtained  if  the  vision  of  the  better  eye  only 
is  used. 

Table  20. 
Out  of  119  fliers  rated  H  at  the  front  there  are  3  ears  rated  above 

normal  and  15  below  normal. 
Out  of  143  fliers  rated  L  at  the  front  there  are  2  ears  rated  above 

normal  and   15  below  normal. 
Out  of  72  fliers  rated  H  at  the  flying  schools  there  are  2  ears  rated 

above  normal  and  7  below  normal. 
Out  of  81  fliers  rated  L  at  the  flying  schools  there  are  0  ears  rated 

above  normal  and  8  below  normal. 
Out  of  31  men  discharged  for  inability  to  learn  to  fly,  only  one  ear 

was  below  normal. 


AERONAUTICS  COOPERATION  627 

Table  21.     Frequencies  of  Different  Lengths  of  Nystagmus  after 

Rotation   and  of  Different   Amounts  of   Past-Pointing  in    Military 

Aviators  of  High  and  of  Low  Ratings  for  Success.  H  =  high. 
L  =  low.  D  =  discharged  or  transferred  because  of  lack  of  promise 
as  a  flyer. 

Records  Records 

at  the  front  at  the  flying:  schools 

Aces          H              L               H  L              D 

Average  length  of  nystag- 
mus 221/2  to  29y2 53.6  48.5  53.4  46.8  56.2  64.0 

Average  length  of  nystag- 
mus under  22%  or  over 

291/2 46.4  5.15  46.6  53.2  47.8  36.0 

Number  of  cases  used  in 

the  calculation  28  132  131  109  73  86 

Number  of  past  pointings 

near  "normal"  (10  to  15)  55.6  60.0  74.3  67.9  61.2  69.7 

Number  of  past  pointings 
far  from  "normal"  (under 

10  or  over  15) 44.4  40.0  25.7  32.1  38.8  *30.3 

Number  of  cases  used  in 

the  calculation 9  40  70  53  67  86 

Table  22.  The  Frequencies  of  Different  Heart  Rates  in  Military 
Aviators  of  High  and  of  Low  Ratings  for  Success.  H,  L,  and  D 
have  meanings  as  in  previous  tables. 

H           L,            H  L           D 

Under  72 17.0       12.1        11.3  18.7      13.9 

72-77 31.4      29.8        28.2  26.3      27.8 

68-83 15.2      25.5        21.1  13.8       33.3 

84-89 21.2       16.3        21.1  17.5       11.1 

90  or  over 15.2       16.3         18.3  23.7       13.9 

Aces 

Under  77 38.2      48.4      41.9         39.5  45.0      41.7 

77  and  over 61.8      51.6       58.1         60.5  55.0      58.3 

Number  of  cases..                    .34       118       141        71  80         36 


628  HISTORY  OF  PERSONNEL 

Table  23.  The  Frequencies  of  Different  Blood  Pressures  in  Military 
Aviators  of  High  and  Low  Ratings  for  Success.  H,  L,  and  D  have 
meanings  as  in  previous  tables. 

Records  Records  from 

from  the  front  the  flying  schools 

Systolic                             Aces  H  L           H          L  D 

Under   120    34.4  28.8  29.9         16.8       11.7  21.8 

120-139    56.2  56.9  51.2        63.7  70.6  67.8 

140  or  over 9.4  14.4  9.0         19.5       17.7  10.4 

Number  of  cases 32  153  134  113  136  87 

Diastolic 

Under  70 19.4  24.6  18.0         12.5  11.7  15.0 

70  to  80 64.5       59.9  67.2         75.9  78.8  71.2 

90  and  over .....16.1       16.2  14.8         11.6  9.5  13.8 

Number  of  cases 31  142  128  112  137  87 

A  TEST  OF  INTELLIGENCE  FOR  USE  WITH 
ENLISTED  MEN  IN  THE  AIR  SERVICE 

The  Department  of  Military  Aeronautics,  for  various 
reasons,  especially  because  of  the  nature  of  the  work  done  by 
its  enlisted  men,  decided  not  to  rely  solely  on  the  regular 
army  intelligence  test  for  the  intelligence  of  recruits,  in 
which  the  ability  to  deal  with  verbal  data  was  properly  made 
prominent.  At  the  request  of  the  Director,  Dr.  Thorndike 
of  the  Committee  undertook,  in  September,  1918,  to  prepare 
a  series  of  tests  to  supplement  or  replace  the  regular  army 
tests,  Alpha  and  Beta,  and  if  possible  to  prepare  a  series  that 
could  be  administered  satisfactorily  by  any  personnel  officer 
after  a  few  hours  of  practice. 

A  series  was  devised  using  four  of  the  army  Beta  tests, 
changed  somewhat  so  as  to  be  adapted  to  men  in  the  mechan- 
ical trades  and  four  new  tests,  all  being  given  without  any 
use  of  words  by  the  examiner  or  the  candidate.  Fifteen 
alternative  forms  were  prepared,  all  of  equal  difficulty.  These 
were  tried  out  with  some  thousands  of  individuals,  standar- 
dized, checked  against  the  demonstrated  ability  of  men  who 
had  been  long  in  the  air  service,  and  found  satisfactory.  One 
sample  form  is  shown  below.  All  instructions  are  received 


AERONAUTICS  COOPERATION  629 

by  imitation  of  the  examiner  who  uses  a  large  sheet,  20x36 
inches,  in  front  of  the  group,  following  a  standard  procedure. 


SERIES  i 

A 


Write  your  name  here  ] 
Write  it  very  clearly    j 


TEST  1 


l|v|v|  |v|v|   |v|v| 

|V|V|     |V|V|     |V|V|     |V|V| 

1 

1    1 

2|X|X|X|    |X|X|X|    |X|X|Xl    IXIXIXI    IXIXIXI    IXI    I 

1 

3|X|0| 

ixlol 

|x|o| 

Ixloi 

1  Ixl  1 

IE 

4|X|X|0|X|X|0|X|X|0|X|X|0|X|X|0|X|X|0|X|X|0|    | 

IE 

5|0|X|X| 

o|x|x|   lolxlxl   lolxlxl   lolxlxl 

0 

1 

"T 

6  |0|X|X|0|X|X|0|X|X|0|X|X|0|X.IX|0|XIX|0|X|X|    1 

i  i  i  i  i  i 

7|0|A|A|D|D|    lOlAlAlDlDl    |O|A|A|D|D|     |O|A|A|    1 

i  i 

8|i  rini 

i  irini  |i 

irini   H 

rini  ii  rim 

i 

1 

i  i 

BLI  t  • 

.MIL 

MIL 

1   L  ]  M 

. 

1 

i  i 

10  |i  iininn 

li 

|l  |HI|IIR| 

1  |     |  1  |Hl|lM 

I! 

1  1  [in  |  mi  |n! 

i 

1 

i 

ill  M  mm 

1 

iililiilinii  |i|i|iniii|i|ii|i  i  mini  il  mi 

1 

i 

12|olAlAlDlD|0|AlAlDlD|0|AlA|D|D|0|A|A|D|D|0| 

1    1 

1  1  ! 

FIG.  27 
Mental  Test— Test  1 

These  tests  gave  promise  of  being  a  valuable  supplement 
to  the  regular  army  tests,  Alpha  and  Beta,  in  the  case  of 
recruits  destined  for  work  in  the  field  artillery,  coast  artil- 
lery, signal  corps,  motor  transport,  tank  corps  and  other 
departments  where  intelligence  in  dealing  with  mechanisms 


630  HISTORY  OF  PERSONNEL 


rather  than  in  understanding  verbal  directions  is  of  special 
importance.     See  Figure  27  for  fragments  of  the  test. 


TEST  3 


3 

1 

2 

1 

3 

2 

1 

4 

2 

3 

5 

2 

9 

1 

4 

6 

3 

1 

5 

4 

2 

7 

6 

3 

8 

7 

2 

9 

5 

4 

6 

3 

7 

2 

8 

1 

9 

5 

8 

4 

7 

3 

6 

9 

5 

1 

9 

2 

8 

3 

7 

4 

6 

5 

9 

4 

8 

5 

7 

6 

9 

3 

8 

6 

4 

1 

5 

7 

2 

6 

2 

4 

8 

1 

3 

4 

9 

5 

1 

7 

FIG.  27a. 
Mental  Test— Test  3 

A  PLAN  FOR  CLASSIFYING  PILOTS  FOR  TRAINING 

AS  PURSUIT  PILOTS,  BOMBING  PILOTS, 

PILOTS  FOR  OBSERVERS,  AND 

INSTRUCTORS 

At  the  request  of  Lieutenant  Colonel  J.   E.   Carberry  of 
the  Training  Section,  a  tentative  plan  was  devised  early  in 


AERONAUTICS  COOPERATION,  631 

the  fall  of  1918  for  using  available  information  about  pilots 
in  training,  so  as  to  put  the  right  man  in  the  right  place. 
Various  circumstances  prevented  the  Committee  from  per- 
fecting this  plan  and  discovering  its  merits  by  a  try-out. 
The  fundamental  principle  of  distributing  a  fixed  amount  of 
qualitative  demand  amongst  various  characteristics,  such  as 
intellect,  skill  in  straight  flying,  skill  in  "stunt"  flying,  mark- 
manship,  etc.,  differently  for  the  four  varieties  of  pilots,  was 
accepted  and  a  first  revision  of  the  plan  made  in  co-operation 
with  the  officers  in  charge  of  flying  instruction  at  Kelly  Field. 
This  principle  of  "bidding"  for  qualities  was  used  later  to 
good  effect  as  the  basis  in  the  Committee  plan  for  the 
Selection  and  Classification  of  Officer  Material  in  the  Stu- 
dents' Army  Training  Corps,  (see  Chapter  41).  The  tech- 
nique of  so  using  the  resulting  fitness  scores  as  to  send  each 
man  to  the  work  for  which  he  was  most  fit  and  at  the  same 
time  give  each  branch  of  work  its  just  proportion  of  men  of 
each  grade  of  ability,  which  was  worked  out  for  the  Carberry 
plan,  was  adopted  in  its  entirety  in  the  plan  for  distributing 
the  S.  A.  T.  C.  officer  material  to  the  different  branches  of  the 
line  and  Staff  Corps.  Had  the  war  continued,  the  placement 
of  some  seven  thousand  officers  per  month  would  have  been 
effected  in  accordance  with  the  principles  and  technique 
worked  out  first  for  the  placement  of  pilots. 

ON   THE    SELECTION    OF    PERSONNEL    FOR    THE 
AIR  SERVICE   UNDER  PEACE  CONDITIONS 

Dr.  Thorndike  was  appointed  by  the  Director  of  Military 
Aeronautics  as  a  member  of  the  board  to  consider  and  report 
on  the  problems  of  training  under  peace  conditions.  By  vote 
of  the  board  he  was  requested  to  report  specially  on  the 
Selection  of  Personnel  for  the  Air  Service  under  Peace  Con- 
ditions, and  outlined  a  plan  by  which  the  service  could  secure 
the  desired  sort  of  men  for  (A)  officer-pilots,  observers, 
engineer  officers,  adjutants,  personnel  officers,  etc.;  (B) 
pilots  with  rank  corresponding  to  that  of  petty  officers  in  the 


632  HISTORY  OF  PERSONNEL 

navy;  (C)  foremen,  skilled  mechanics,  and  the  like,  with 
rank  of  sergeant,  master  electrician,  etc.;  and  (D)  unskilled 
and  apprentice  workmen  with  rank  of  private. 

OUTLINE  OF  VARIOUS  SERVICES  RENDERED  THE 
DEPARTMENT  OF  MILITARY  AERONAUTICS 

Besides  these  main  lines  of  work  in  connection  with  prob- 
lems of  the  flying  personnel,  the  Committee  was  responsible 
for: 

1.  Various    reports    concerning   the    qualities    associated 
with  success   as  a  military   aviator,  beginning  in   November. 
1917,  for  the  guidance  of  examining  boards  in  the  selection 
of  cadets  on  a  flying  status. 

2.  An  investigation  of  the  ratings  made  upon  the  same 
candidates  by  different  examining  boards. 

3.  A  scale  for  measuring  the  degrees  of  responsibility 
and  leadership  represented  by  different    jobs,    for    use    by 
examining  boards. 

4.  A  scheme  for  credits  to  be  used  by  examining  boards 
in  selecting  aviation  cadets.     This  scheme  was  based  on  the 
judgment  of  thirty  experts  in  scientific  personnel  work  and 
fifteen  experienced  military   aviators. 

5.  A  scale  for  measuring  the  athletic   ability  of  candi- 
dates, for  use  by  examining  boards. 

6.  A  scale  for  measuring  the  achievement  of  college  and 
high   school    students   in  non-academic   activities,   for   use  by 
examining  boards. 

7.  An  investigation  of  the  relation  between  the  records 
made  in  the  Barany  rotation  tests  by  135  aviators  and  their 
success  as  fliers.     And  later  a  still  more  extended  investiga- 
tion of  the  same  problem. 

8.  A  descriptive  inventory  of  the  non-flying  officers  of 
low  military  rank,  but  exceptionally  great  merit  and  promise. 

9.  A  descriptive  inventory  of  the  success  in  civilian  life 
of  non-flying  officers,  of  the  rank  of  captain,  first  lieutenant 
and  second  lieutenant. 


AERONAUTICS  COOPERATION  633 

10.  An  investigation  of  the  use  of  the  Officers'  Qualifica- 
tion Record  Card  in  the  Air  Service. 

11.  A  set  of  tables  for  equating  the  official  ratings  given 
by  any  one  officer  rating  ten  or  more  officers  with  the  ratings 
given  by  any  other. 

12.  A  set  of  tables  for  interpreting  the  meaning  of  co- 
efficients of  correlation  of  .50,  .60,  .70,  .80  and  .90. 

13.  A  study  of  the  personnel  data  in  the  case  of  British 
fliers  secured  by  Captain  Bigelow  for  the  Personnel  Section 
of  the  D.  M.  A. 

14.  The  relation  between  standing  in  the  Schools  of  Mili- 
tary Aeronautics  and  success  as  a  Military  Aviator. 


CHAPTER  48 


The  Quartermaster  Corps  was  the  first  of  the  Staff  Corps 
to  follow  in  detail  the  Committee's  methods  for  commissioned 
and  enlisted  personnel.  Major  General  H.  G.  Sharpe,  and 
later,  Major  General  G.  W.  Goethals,  Mr.  Robert  Thome, 
and  Colonel  Charles  P.  Daly,  all  considered  the  classification 
and  officer  ratings  important  and  cooperated  in  their  intro- 
duction and  perfection.  The  first  Trade  Test  station  was 
established  at  the  Quartermaster  Camp  Joseph  E.  Johnston, 
Jacksonville,  Florida,  and  the  Personnel  Office  at  that  camp, 
under  Major  Claude  M.  Fuess,  was  a  model  of  its  kind. 

After  the  rating  scale  had  been  started  in  the  line  of  the 
Army,  Dr.  Scott  and  his  associates  made  contacts  with  the 
officers  of  the  Staff  Corps  and  presented  the  Army  Classifica- 
tion System,  as  then  operated.  In  the  Quartermaster  Corps, 
General  Sharpe  and  Colonel  Daly  were  immediately  im- 
pressed with  the  importance  of  the  work.  At  that  time,  July, 
1917,  it  was  important  that  every  effort  be  expended  on  the 
line,  so  the  amount  of  work  that  could  be  done  by  the  Quar- 
termaster Corps  was  limited.  A  system  for  using  the  rating 
scale  and  for  keeping  records  for  candidates  for  commission 
in  training  at  Camp  Joseph  E.  Johnston  was,  however, 
worked  out.  This  was  installed  by  Captain  (later  Major) 
J.  H.  Spengler,  Q.  M.  C.  In  February,  1918,  however, 
the  need  for  the  more  thorough  classification  and  rating  of 
officers  in  the  Quartermaster  Training  Camp  at  Jackson- 
ville, Florida,  became  acute  and,  at  the  request  of  General 
Goethals.  Dr.  Scott,  Colonel  Daly  and  Mr.  W.  S.  Field,  who 
was  working  for  the  Quartermaster  General  on  personnel  and 

634 


QUARTERMASTER  COOPERATION         635 

training  problems,  went  to  Camp  Joseph  E.  Johnston  and 
classified  all  the  officers  in  the  school.  The  cards  were 
sent  to  the  office  of  the  Quartermaster  General  and  there  used 
in  selecting  officers  for  special  assignment. 

PERSONNEL  WORK   IN  THE  OFFICE  OF  THE 
QUARTERMASTER  GENERAL 

On  March  1,  1918,  Mr.  (later  Lt.  Col.)  John  J.  Coss  of 
the  Committee  took  charge  of  the  personnel  work  in  the  Quar- 
termaster Corps  and  continued  until  July  1st,  when  he  re- 
turned to  the  Committee.  He  was  supported  in  his  work  by 
Mr.  W.  R.  DeField,  a  member  of  the  Committee,  who  was 
assistant  to  Mr.  Robert  Thome,  Assistant  Quartermaster  Gen- 
eral. The  details  of  the  work  in  the  Quartermaster  Corps 
given  in  this  chapter  are  for  the  period  of  Mr.  Coss'  adminis- 
tration. 

During  this  time,  the  use  of  the  Rating  Scale  and  the 
Officers'  Qualification  Card  was  established  throughout  the 
Corps.  In  this  work,  the  field  staff  of  the  Committee,  under  the 
direction  of  Dr.  Strong,  assisted  materially  by  explaining  the 
scale  in  all  the  larger  Quartermaster  stations.  The  qualifica- 
tion cards  were  used  increasingly  for  the  selection  of  officers 
and  for  overseas  detail.  The  practice  of  sending  qualification 
cards  with  casual  officers,  so  marked  as  to  indicate  the  proper 
assignment,  was  first  regularized  in  the  Staff  Corps  by  the 
Quartermaster. 

An  effort  was  made  to  centralize  the  procurement  of  officers. 
Orders  were  issued  that  no  civilians  would  be  commissioned 
unless  there  were  no  qualified  officers  or  officer  candidates 
available.  This  gave  a  fairer  chance  to  the  men  in  the  serv- 
ice, but  it  did  not  operate  perfectly,  since  the  need  for  officers 
could  not  be  accurately  enough  predicted  to  prepare  a  supply 
from  within  the  service. 

The  commissioning  of  draft  age  civilians  was  reduced  to  a 
minimum.  Only  the  rarest  technical  specialists  were  commis- 
sioned and  then  seldom  over  the  rank  of  first  lieutenant. 


636  HISTORY  OF  PERSONNEL 

Each  commission  so  granted  was  approved  by  Major  General 
Goethals  or  Brigadier  General  R.  E.  Wood. 

A  new  form  of  application  for  commission  (CCP-1110)  and 
a  summary  report  sheet  called  "Inventory  of  Personnel" 
(CCP-12)  were  prepared  for  the  Quartermaster  Corps  by 
Mr.  Kendall  Weisiger  of  the  Committee.  The  applicant's 
qualification  card  was  used  with  marked  success.  Indeed,  it 
formed  the  basis  of  the  card  prepared  by  the  centralized 
Personnel  Branch  of  the  General  Staff,  for  use  by  all  appli- 
cants for  commission.  The  "Inventory,"  while  a  very 
effective  form,  required  for  its  use  a  greater  refinement  of 
personnel  methods  than  was  achieved  in  the  rush  of  the  war 
expansion. 

An  effective  system  for  keeping  track  of  the  commissioned 
personnel  was  installed.  Each  Staff  Corps  kept  its  own  file 
of  officers'  qualification  cards  and  its  own  station  list,  show- 
ing the  geographical  location  of  its  officers.  In  addition,  the 
Quartermaster  Corps  kept  a  visible,  alphabetical  officers'  file. 
For  the  station  file,  an  ingenious  system  was  devised  by 
Major  George  H.  Hahn,  of  the  Personnel  Division.  Each 
officer  was  recorded  on  a  card  bearing  the  appropriate  top 
flap.  When  an  officer  changed  stations,  his  card  was  moved. 
The  card  system  was  filed  in  the  "tub"  file  and  not  in  the 
usual  drawer  system. 

A  modification  of  this  system  with  a  series  of  red  cards 
with  the  rank  flaps  to  be  inserted,  blank,  where  vacancies  in 
the  different  grades  existed,  could  be  used  successfully  in 
peace  times  for  a  centralized  station  record.  Metal  tabs  in 
colors  appropriate  to  the  corps,  could  be  used  on  the  red 
cards  and  on  the  others  to  indicate  the  corps  assignments. 

A  Civilian  Qualification  Card  and  a  new  rating  scale  were 
worked  out  for  the  Quartermaster  Corps  civilian  personnel 
by  Mr.  W.  S.  Field,  in  conjunction  with  the  members  of  the 
Committee.  This  card  is  unique  in  that  it  provides  for  rec- 
ording the  kind  of  occupation,  the  kind  of  business  and  the 
degree  of  responsibility,  by  checking  separate  lists. 


QUARTERMASTER  COOPERATION         6i7 


id!  ?    II    lip 

!  I 


in  i u    1 1 

I     ::|f! 


•it          t  t 


ill! 
i  lif'iJ       I,  i\$  r     P    iil 


II  v?2|l 

iSUI 

0^'fl--  -    ««i-vTj*j«.§--;»   ii.  v  •  »  1  •-  *ui«  §,*•--«   i-d 


it  |!  | 
lit    u'4 

ill 

USUIHJt 


I! 


lliiliiliiin 


'  iifiiHH  iiiiti  jiii  ijiiii  LP  i 'UiiHiii'ii1 

-i^"  Sjii**1!* !«((**<«**  a  J""-1'  J-i-  4»t'-«««-i»  »• 


ssse: 
"•:;* 


o 


i 

g      00     S 

p] 

I  O 


638 


A  system  of  monthly  strength  returns  and  forecast  of 
needs  was  instituted  and  carried  out  chiefly  by  Captain  W.  R. 
Robinson  and  Mr.  William  Carruth.  This  report  kept  cur- 
rent exact  figures  of  strength  and  estimated  need  by  occupa- 
tion. The  estimate  of  needs  was  begun  in  March  but  was 
never  accurate.  Accuracy,  indeed,  was  not  possible  until  the 
full  occupationalization  of  organizations  was  completed,  in 
November,  1918,  by  Major  Sidney  A.  Friede,  Quartermaster 
Corps,  detailed  for  work  with  the  Committee. 

This  estimate  of  needs  was  particularly  necessary  for  the 
training  work  of  the  Quartermaster  Corps,  which  was  under 
the  effective  direction  of  Mr.  W.  S.  Field.  In  an  effort  to 
accumulate  information  on  the  functions  to  be  performed  by 
officers  and  men  in  overseas  units,  in  order  to  forecast  the 
needs  more  accurately  and  to  formulate  a  training  program, 
Major  Friede  was  sent  overseas  and  returned  with  a  very 
valuable  report. 

The  use  of  limited  service  men  in  the  Quartermaster  Corps 
in  office  units  for  the  field  was  extensive.  Studies  were  made 
on  the  advisability  of  using  limited  service  men  in  the  office 
of  the  Quartermaster  General  and  the  Supply  Depots.  The 
saving  of  money  over  the  civilian  clerical  forces  was  not 
large  enough  to  over-balance  the  dislike  of  giving  office  posi- 
tions to  men  in  uniform,  even  if  certified  by  the  draft  for 
limited  service  only.  In  the  Quartermaster  Corps,  very  few 
enlisted  men  were  ever  used  in  office  work  outside  of  the  field. 

Procedure  of  Organization  Units.  The  Office  of  the 
Quartermaster  General  was  called  upon  to  furnish  officers 
and  enlisted  men  for  service  in  the  States,  and  it  was  also 
required  to  organize  uilits  in  accordance  with  an  overseas 
program.  To  enable  the  corps  to  meet  its  obligations,  author- 
izations for  commissioned  and  enlisted  personnel  were  given 
by  the  General  Staff.  Requisitions  for  enlisted  personnel 
were  prepared  by  occupations  and  transmitted  to  the  central 
distributing  office  of  the  Committee.  These  requisitions  were 
put  on  a  priority  schedule  by  Lt.  Col.  Kimball,  of  the  Opera- 


QUARTERMASTER  COOPERATION 


639 


t 

1 

1 

!i 

i 
ij 

1 

:! 
J 

! 
• 

= 

i 

P 

! 

| 

! 

| 

I 

_ 

I 

:i 

^    i 

i 

j 

i 

5 

! 

ii 

i!)  j 

s 

s 

I 

„ 

: 

1! 

:5s 

pr 

i 

! 

= 

5 
f 
J 

i 

I 

1 

1 

i 

i 

- 

! 

i 

; 

ii 

•  . 

b.T 

! 

t 

j 

• 

!i  i 

n 

M    « 

; 
? 

• 

' 

:•       • 

:i    ! 

51     - 

I 
i 

i 

! 

; 
1 

1 

i 
> 

| 

j 

i 

: 

i 

j 

1 

I 

! 

:• 
!; 

! 
i 

i!  , 

! 

! 
j 

I 
j 

II     t 

| 

i 
j 
1 

[I 

| 

j 
' 

. 

j 

'• 
I 

4 
l\ 

* 

!' 

i 

-  * 
n 
1] 

S 

5; 

•'- 

1 

-3 

3 

o- 


640  HISTORY  OF  PERSONNEL 

tions  Division,  General  Staff,  and  to  fill  them  men  were 
ordered  from  Depot  Brigades  to  Quartermaster  organization 
points. 

At  these  points,  the  largest  of  which  was  Camp  Joseph  E. 
Johnston,  the  classification  of  the  men  was  checked,  assign- 
ments to  companies  made  or  further  individual  training 
ordered.  The  units  were  given  a  small  amount  of  group 
training  and  were  then  reported  to  the  Transportation  Divi- 
sion of  the  Purchase,  Storage,  and  Traffic  Division,  as  ready 
for  transportation.  When  this  was  furnished,  the  units  pro- 
ceeded to  embarkation  points  and  were  shipped. 

Officers  for  overseas  organizations  were  secured  either  by 
assignment  of  personnel  serving  in  camp  organizations  or 
by  commissioning  from  the  Officer  Candidate  School  at  Joseph 
E.  Johnston  or  Camp  Meigs,  or  by  commissioning  from  civil 
life.  The  last  method  was  followed  rarely,  and  only  for 
such  special  units  as,  for  instance,  the  Refrigeration  Service. 

From  July,  1918,  the  personnel  under  the  direct  control 
of  the  Quartermaster  General  was  decreased  by  the  separa- 
tion from  the  Quartermaster  Corps  of  the  Construction  Divi- 
sion and  the  Motor  Transport  Corps  and  by  the  absorption 
of  Quartermaster  functions  by  Purchase,  Storage,  and  Traf- 
fic. With  the  centralization  of  officer  personnel  procurement 
in  the  Personnel  Branch,  General  Staff,  the  Quartermaster 
Corps,  as  all  other  arms  of  the  Service,  became  dependent 
upon  that  agency  for  its  officer  personnel. 

PERSONNEL  WORK  IN  THE  FIELD* 

Camp  Joseph  E.  Johnston  was  established  on  October  13, 
1917,  and  continued  without  intermission  to  the  close  of  the 
war  as  a  Quartermaster  camp.  Its  organization  was  singular, 
in  that  it  could  not  be  administered  through  brigades,  regi- 
ments and  battalions,  as  were  the  National  Army  and 
camp  was  early  worked  out.  This  so-called  "block-system," 


•The    following   Is   taken   from   the    report    of   Major   C.    M.    Fuess,    In 
charge  of  Personnel,  Camp  Joseph  E.  Johnston. 


QUARTERMASTER  COOPERATION          641 

without  any  reference  to  military  acts  or  customary  military 
National  Guard  camps  where  line  organizations  were  in  train- 
ing. A  scheme  of  military  administration  peculiar  to  the 
regulations  assembled  a  number  of  Quartermaster  Corps  com- 
panies for  the  purpose  of  camp  administration  within  sep- 
arate geographical  blocks.  This  peculiarity,  together  with 
the  fact  that  Camp  Johnston  was  almost  primarily  a  train- 
ing camp,  made  the  personnel  work  there  of  the  most  com- 
plicated character.  A  general  order,  dated  April  18,  1918, 
declared  the  entire  camp  to  be  a  school,  and  every  division 
within  the  camp  was  directed  to  consider  itself  a  part  of  the 
general  training  scheme. 

These  preliminary  remarks  will  serve  to  show  in  part 
how  interesting  the  situation  at  the  camp  came  to  be  for  the 
personnel  officer  in  charge.  In  addition,  it  is  worth  while 
mentioning  that  the  officer  in  charge  of  personnel  work  was 
for  several  months  a  civilian  and  that  all  the  members  of 
the  Personnel  Division  were  connected  with  the  Quarter- 
master Corps  and  not  with  the  Adjutant  General's  Depart- 
ment, as  in  other  cantonments.  Finally,  the  scope  and  power 
of  the  personnel  office  in  Camp  Johnston  was  greater  than 
in  any  personnel  office,  and  its  functions  "were  more  numerous 
and  varied. 

Early  Personnel  Work.  Shortly  after  the  camp  was  or- 
ganized, a  local  record  card  had  been  devised  which  each 
enlisted  man  was  obliged  to  fill  out  himself:  This  card  in 
the  light  of  future  events  proved  to  be  by  no  means  adequate, 
even  when  supplemented  by  the  system  introduced  in  August, 
1917,  by  the  Committee.  When  a  card  was  made  out,  it  was 
sent  to  camp  headquarters.  Here,  each  card  was  examined  and 
marked  in  blue  pencil  with  "Vocational  Assignment."  As  no 
official  index  of  occupations  then  existed,  a  special  occupational 
list  was  prepared  in  the  camp.  When  specialists  of  a  particular 
trade  were  needed,  new  classifications  had  to  be  made.  At  one 
time,  for  instance,  a  special  class  was  made  of  "Overland  and 
Buick  Spare  Parts  Experts."  When  the  vocational  assignments 


642 HISTORY  OF  PERSONNEL 

were  completed  cards  were  filed  by  occupation.  Locator 
cards  were  also  prepared  from  travel  orders  and  filed  alpha- 
petically.  A  glaring  defect  of  this  system  was  that  the 
qualification  cards  were  filled  out  by  the  men  to  be  assigned 
without  interview,  instruction  or  control  of  any  nature,  ex- 
cept to  see  that  a  card  was  received  from  each  man.  In 
the  early  days  of  Camp  Johnston,  the  men  sent  there  aver- 
aged very  high  in  education  and  ability.  They  soon  found  out 
that  if  they  underscored  "auto  driver,"  or  "horseman,"  or 
"farmer,"  they  would  probably  be  assigned  as  chauffeurs  in 
a  Truck  Train  or  laborers  in  a  Remount  Squadron.  They, 
therefore,  usually  concealed  the  fact  that  they  had  ever  driven 
an  automobile  or  carried  on  farm  work. 

Some  assignments  in  camp  were  very  unpopular.  For  in- 
stance, nobody  liked  to  be  assigned  as  teamster  in  a  Wagon 
Company.  On  one  occasion  when  nobody  volunteered  for 
this  job,  the  personnel  officer  took  at  random  a  hundred  cards 
and  assigned  all  the  men  to  Wagon  Company  work.  This 
procedure  was  not  very  successful,  because  many  of  the  men 
were  too  short  or  too  light  in  weight  to  carry  on  the  work. 
Finally,  somebody  devised  a  "brilliant"  scheme.  Delegates 
from  the  Wagon  Companies  were  sent  to  every  barracks  in 
camp  with  authority  to  pick  out  whatever  men  they  wished. 
This  procedure  resulted  in  giving  the  Wagon  Companies  a 
full  personnel. 

It  is  not  just,  however,  to  criticise  too  severely  those  in 
charge  of  Personnel  work  at  Camp  Johnston  early  in  1918. 
No  one  had  been  told  anything  about  right  methods  and  they 
had  received  no  instruction  since  August,  1917,  regarding  the 
plans  of  the  Committee  on  Classification  of  Personnel  in  the 
Army.  The  principle  that  a  man  should  be  assigned  on  the 
basis  of  his  previous  training  and  experience  was  not  well 
established.  Transfers  from  one  unit  to  another  were  made, 
not  usually  on  the  basis  of  the  man's  previous  occupation,  but 
frequently  because  of  personal  influence.  Furthermore,  there 
was  no  one  who  was  recognized  as  being  in  absolute  control 


QUARTERMASTER  COOPERATION          643 

D£  personnel  work  at  the  camp.  Authority  was  divided  among 
several  officers  all  of  whom  were  at  the  beck  and  call  of  the 
Camp  Adjutant.  The  deficiencies  of  the  personnel  work  at 
Camp  Johnston  were  brought  to  the  attention  of  the  Com- 
mittee in  February,  1918,  and  the  first  important  reforma- 
tory step  in  the  handling  of  enlisted  personnel  was  taken  in 
sending  Mr.  D.  J.  O'Connor  to  Camp  Johnston. 

Reorganization  of  Personnel  Work.  Mr.  O'Connor  put 
into  use  at  Camp  Johnston  the  qualification  card  devised 
by  the  Committee,  and  gave  detailed  instructions  regarding 
the  proper  method  of  interviewing  men  and  making  out 
these  cards.  Under  his  supervision,  the  entire  person- 
nel of  the  camp  was  "carded."  Second  Lieutenants  from 
the  first  Officers'  Training  School  were  used  as  inter- 
viewers. At  approximately  the  same  time,  Dr.  Scott  came  to 
Camp  Johnston  and  lectured  to  the  officers  regarding  the  mak- 
ing out  of  Officers'  Qualification  Cards  and  the  correct 
methods  of  rating  subordinate  officers. 

As  a  result  of  the  visits  of  Mr.  O'Connor  and  Dr.  Scott, 
a  new  conception  of  personnel  work  was  established  in  the 
camp.  Mr.  Fuess  (later  commissioned)  was  then  selected  by 
Mr.  Coss  and  after  being  trained  by  the  Committee,  was 
placed  in  charge  of  personnel  work.  When  he  arrived,  he 
found  the  way  already  opened  for  the  installation  of  a  real 
Personnel  Division.  For  two  or  three  days  after  his  arrival 
at  Camp  Johnston,  Mr.  Fuess  was  occupied  from  early5  morn- 
ing until  late  at  night  in  interviewing  men  who  claimed  that 
they  had  been  improperly  assigned.  Soldiers  qualified  in 
specific  trades  maintained  that  they  had  not  been  placed  in 
companies  where  their  attainments  could  be  used.  A  dis- 
tinguished lecturer  and  author,  a  graduate  of  Harvard,  had 
been  assigned  to  a  Butchery  Company,  where  his  main  job 
was  to  cut  meat.  Being  slight  of  frame  and  not  in  very 
good  health,  he  was  poorly  equipped  for  the  task  of  handling 
a  cleaver.  When  removed  from  the  Butchery  Company  and 


644  HISTORY  OF  PERSONNEL 

assigned  as  intruder  in  the  Training  Division,  he  delivered 
brilliant  lectures. 

It  may  be  that  the  new  Chief  of  Personnel  was  inclined 
to  lend  too  free  an  ear  to  the  complaints  brought  to  his 
notice.  In  some  cases  he  was  convinced  that  a  cowardly 
or  weak  man  was  trying  to  escape  overseas  duty.  In  one 
famous  case,  a  soldier  succeeded  through  some  plaintive  tale  in 
getting  himself  transferred  from  an  overseas  unit  to  some 
non-combatant  permanent  company.  Unwisely,  however,  he 
boasted  of  his  achievement  and  the  boast  reached  the  ears 
of  the  Chief  of  the  Personnel  Division.  Righteously  angry 
at  having  been  so  imposed  upon,  that  officer  proceeded  to 
transfer  the  soldier  to  his  original  overseas  company.  This 
case  is  typical  of  what  happened  in  many  cases  in  those  early 
days. 

It  soon  became  apparent  that  it  would  be  beyond  the 
physical  power  of  one  man  to  interview  the  long  line  of 
soldiers  that  appeared  each  day.  Accordingly,  Mr.  Fuess 
picked  two  sergeants  and  he  intrusted  them  with  the  duty  of 
listening  to  the  tales  of  woe.  These  men  soon  acquired  ex- 
perience in  the  art  and  were  able  very  quickly  to  separate 
the  sheep  from  the  goats.  The  goats  were  summarily 
ejected;  the  sheep  were  treated  courteously  and  given  assign- 
ments more  to  their  satisfaction.  It  was  important  also  to 
establish  at  once  a  system  of  interviewing  incoming  recruits. 
Not  entirely  satisfied  with  the  results  of  the  interviewing  by 
the  second  lieutenants,  Mr.  Fuess  picked  some  fifteen  young 
enlisted  men,  all  college  graduates,  and  gave  them  instruc- 
tions in  the  proper  method  of  making  out  qualification  cards. 
These  men  became  the  nucleus  of  an  organization  which  was 
later  to  include  some  fifty  interviewers,  all  of  them  skilled  in 
their  particular  job. 

To  keep  the  personnel  organization  working  together,  con- 
ferences of  department  heads  were  called  every  morning  at 
seven  forty-five.  This  proved  a  valuable  feature. 

The  organization   of  the  personnel  office  at  the  time  of 


QUARTERMASTER  COOPERATION          645 

Mr.  Fuess'  arrival  had  been  worked  out  by  Mr.  W.  S.  Field, 
who,  as  Chief  of  Quartermaster  Training  and  advisor  on  the 
administration  of  Camp  Johnston,  had  drawn  organization 
plans  for  each  of  the  functions  of  the  camp  establishment.  Mr. 
Field's  connection  with  the  corps  ceased  on  July  1,  and,  as 
the  personnel  work  grew,  certain  changes  became  necessary. 

The  operation  of  the  different  branches  under  the  Chief  of 
Personnel  is  of  interest: 

Any  civilian  choosing  to  enter  the  service  at  Camp  John- 
ston was  brought  before  the  Induction  Branch,  Personnel  Di- 
vision, where  he  was  instructed  in  the  proper  form  to  fill  out 
and  was  regularly  taken  into  the  service.  An  enlisted  soldier 
coming  to  Camp  Johnston  from  some  other  camp  or  army 
post  was  sent  at  once  to  the  Receiving  Group  to  report  to 
the  commanding  officer.  From  there,  he  was  directed  to  the 
Office  of  the  Procurement  Branch,  Personnel  Division.  Here 
he  presented  his  qualification  card;  if  he  had  no  qualification 
card  he  was  interviewed  and  a  card  made  out  and  placed  in 
the  files.  After  filling  or  making  out  his  qualification  card, 
the  soldier  was  sent  before  an  officer  by  whom  he  was  assigned 
to  a  particular  company  in  a  particular  regiment  in  the  Re- 
ceiving Camp.  Private  John  Smith,  for  instance,  on  the  basis 
of  his  past  experience  in  motor  car  work  was  assigned  to  the 
Road  Training  Regiment,  Company  9.  As  soon  as  practical, 
after  his  assignment,  he  was,  if  he  acknowledged  any  profic- 
iency in  any  particular  trade,  sent  to  the  Trade  Test  Branch, 
Personnel  Division,  where  he  was  given  a  test.  For  example, 
if  he  claimed  to  be  an  outside  wireman  or  an  auto  mechanic 
he  was  given  the  necessary  tests  and  on  the  basis  of  his 
attainments  was  graded  as  an  expert,  journeyman,  apprentice, 
or  novice.  The  result  of  these  tests  was  placed  in  red  ink  on 
his  qualification  card.  After  these  preliminaries,  the  soldier 
took  his  proper  assignment  in  the  Receiving  Camp.  Here  he 
was  brought  before  various  boards  by  whom  he  was  innoculated 
for  typhoid,  vaccinated,  inspected  for  tuberculosis,  foot 


646  HISTORY  OF  PERSONNEL 

trouble  and  tested  by  the  psychologist  to  determine  the  grade 
of  his  mentality. 

The  normal  length  of  stay  in  the  Receiving  Camp,  as  de- 
termined by  carefully  prepared  statistics,  was  approximately 
22  days.  During  this  time,  the  recruit  received  four  hours 
per  day  drill  along  military  lines  and  four  hours  a  day  in 
elementary  instruction  in  one  of  three  branches:  office  train- 
ing, shop  training  or  road  training.  At  the  end  of  approxi- 
mately three  weeks  he  was  declared  released  by  the  epide- 
mologist  and  was  therefore  available  for  transfer  to  the  main 
camp.  Each  day  a  certain  number  of  men  were  ready  for 
such  transfer  and  their  qualification  cards  were  forwarded  to 
the  Assignment  Branch,  Personnel  Division,  at  Headquarters. 
Here  an  officer,  basing  his  judgment  on  the  qualifications  of 
the  men  as  indicated  by  their  qualification  cards,  assigned 
them  to  various  posts  in  the  main  camp. 

Theoretically,  at  Camp  Johnston  every  man  coming  from 
the  Receiving  Camp  should  have  been  assigned  at  once  to 
some  school  unit  in  the  Training  Division  and  should  there 
have  entered  upon  a  course  of  study  of  from  four  to  eight 
weeks.  In  actual  practice,  this  procedure  was  not  possible. 
What  really  occurred  was  that  in  most  cases  all  men  coming 
from  the  Receiving  Camp  who  were  marked  as  experts  or 
journeymen  were  assigned  immediately  to  overseas  organiza- 
tions. In  some  cases,  when  the  pressure  was  very  great,  it 
was  necessary  in  order  to  prepare  these  units  on  time  to 
assign  to  them  even  apprentices.  "  When  assigned  to  an  over- 
seas unit,  the  soldier  received  some  scanty  training,  but  he 
was  generally  equipped  and  inspected  with  his  fellows  within 
a  very  short  period  and  sent  to  a  port  of  embarkation.  In 
an  exceptional  case  when  a  man  was  fortunate  enough  to  be 
sent  to  school  and  pursued  the  course  of  the  Training  Divi- 
.  sion  until  that  division  declared  him  ready  for  assignment, 
he  was  then  put  in  overseas  organizations  to  perform  the 
functions  for  which  he  had  been  properly  trained. 

In  assigning  men  to  these  units  as  much  care  as  possible 


QUARTERMASTER  COOPERATION          647 

was  exercised.  No  card  system,  however,  is  without  its  de- 
fects. In  cases  where  it  could  be  shown  that  a  man's  original 
assignment  was  improperly  made,  he  made  appeal  to  the 
Adjustment  Branch,  Personnel  Division,  by  whom  he  was 
often  transferred  to  a  unit  where  his  ability  could  be  proved 
to  be  of  more  value.  Such  transfers  at  Camp  Johnston 
occurred  frequently  and  were  carried  out  solely  for  the  pur- 
pose of  placing  the  right  man  in  the  right  job. 

The  Organization  Branch,  Personnel  Division,  formed  all 
such  overseas'  units  and  arranged  for  their  departure  from 
camp.  When  a  requisition  came  from  the  office  of  the  Quar- 
termaster General  to  send  men  of  certain  qualifications  to 
other  posts,  it  was  the  duty  of  the  Requisition  Branch,  Per- 
sonnel Division  to  select  these  men,  usually  on  the  basis  of 
a  personal  interview,  and  to  transfer  them  to  fill  the  order. 
Calls  of  this  kind  came  frequently  and  in  some  weeks  two 
hundred  or  three  hundred  men  were  sent  out  of  camp  in 
response  to  such  demands.  This  particular  work  of  the  Per- 
sonnel Division  was  by  no  means  unimportant  and  had  to  be 
conducted  with  great  care. 

The  Records  and  Statistics  Branch,  Personnel  Division, 
kept  the  records  of  every  man  in  camp,  filed  the  qualification 
cards  and  maintained  a  locator  card  file.  Wheji  a  man  was 
finally  sent  from  camp,  either  in  an  overseas  unit  or  on  a 
requisition  from  Washington,  the  Personnel  Division  attended 
to  his  departure,  providing  him  or  his  commanding  officer 
with  the  qualification  card  and  thus  ushered  him  out  of  camp. 

The  Personnel  Division  also  controlled  the  promotion  and 
the  commissioning  of  men  in  camp.  The  papers  of  all  men 
recommended  for  commission  or  promotion  were  forwarded 
through  the  Personnel  Division.  The  Personnel  Division  had 
authority,  through  the  commanding  officer,  to  make  non-com- 
missioned officers.  The  location  of  companies  or  army  units 
in  camp  was  directed  by  the  Chief  of  the  Personnel  Division. 
In  addition,  the  management  of  the  pay  cards  and  pay  rolls 
was  directed  by  the  Personnel  Adjutant's  Branch,  Personnel 


648 HISTORY  OF  PERSONNEL 

Division,  and  all  matters  connected  with  insurance  and  allot- 
ment were  attended  t'o  by  the  War  Risk  Insurance  Branch, 
Personnel  Division.  The  Personnel  Division,  also  in  con- 
nection with  the  Officers'  Training  School,  interviewed 
prospective  officers  with  a  view  to  their  assignment  to  definite 
stations  in  response  to  requisitions  from  the  Quartermaster 
General.  Officers'  qualification  cards  were  kept  in  the  files  of 
the  Personnel  Division  and  placed  in  the  hands  of  officers  on 
their  departure  from  camp. 

At  the  time  when  the  Personnel  Division  was  working  at 
its  highest  capacity,  it  numbered  412  men  located  in  various 
sections  of  the  camp.  The  Induction  Branch,  the  Procure- 
ment Branch  and  the  Trade  Test  Branch  were  in  the  Receiv- 
ing Camp.  All  other  branches,  except  the  War  Risk  Insur- 
ance Branch,  were  located  in  the  Headquarters  Building.  It 
has  sometimes  been  maintained  that  the  clerical  force  em- 
ployed was  too  large,  but  when  it  is  remembered  that  the 
Personnel  Division  at  Camp  Johnston  carried  on  administra- 
tive work,  which  was  of  a  kind  not  carried  on  by  Personnel 
Divisions  in  other  camps,  the  office  force  used  will  not  seem  too 
great. 

A  peculiar  situation  arose  with  the  organization  of  the  sepa- 
rate Motor  Transport  Corps  in  Camp  Johnston.  It  was  not 
altogether  desirable  that  the  Personnel  Division  should  ad- 
minister the  personnel  work  connected  with  the  Motor  Trans- 
port Corps;  yet  no  other  method  could  be  followed  if  the 
work  of  the  Motor  Transport  Corps  was  to  be  done.  Eventu- 
ally the  problem  was  solved  in  the  following  manner:  The 
Chief  of  the  Personnel  Division  assigned  one  man  in  each 
of  the  twelve  branches  to  specialize  in  the  complexities  of  the 
Motor  Transport  Corps.  When  these  men  had  learned  fully 
their  lessons,  they  were  taken  bodily  and  placed  under  the 
control  of  the  commanding  officer  of  the  Motor  Transport 
Corps  at  Camp  Johnston,  who  thus  had  a  complete  Per- 
sonnel Division  under  his  direction  and  at  his  disposal. 
Through  this  method,  the  transition  from  one  state  of  affairs 


QUARTERMASTER  COOPERATION          649 

to  another  was  accomplished  without  friction  or  confusion. 
The  archives  of  the  Quartermaster  Corps  contain  a  detailed 
account  of  the  operation  of  each  Branch  of  the  Personnel 
System  at  Camp  Johnston. 

• 

CAMP  MEIGS 

At  Camp  Meigs,  which  was  a  small  casual  camp  of  about 
3,000,  located  on  the  outskirts  of  Washington,  there  was 
established  a  personnel  office  which  did  satisfactory  work 
throughout  the  war.  A  training  school  was  established  there 
of  officers  from  the  Camp  Johnston  School.  Camp  Meigs  was 
used  by  the  Committee  for  four  sessions  of  the  series  of  Per- 
sonnel Schools  which  were  conducted  under  Dr.  Strong  and 
Mr.  Kendall  Weisiger. 


CHAPTER  49 

PERSONNEL  WORK  IN  THE  NAVY  AND 
MARINE  CORPS 

Under  provisions  of  the  Man-Power  Act  of  August,  1918, 
and  as  a  result  of  a  conference  between  the  War  and  Navy 
Departments,  the  Navy  was  allotted  an  average  monthly 
quota  of  15,000  to  be  taken  from  the  draft;  6,500  by  indi- 
vidual induction  and  the  remainder  from  the  "run  of  the 
draft."  In  addition  to  this  monthly  quota  there  were  certain 
classes  of  the  draft  from  which  inductions  could  be  made  by 
the  Navy. 

The  U.  S.  Marine  Corps,  under  the  provisions  of  the  Man- 
Power  Act  of  August,  1918,  was  entitled  to  receive  from  the 
"general  run  of  the  draft"  a  monthly  quota  of  5,000  men 
until  February,  1919,  and  a  1,500  quota  thereafter.  The 
Marine  program  provided  that  4,000  men  should  be  received 
per  month  at  Paris  Island,  South  Carolina,  and  Mare  Island, 
California.  At  these  marine  barracks  they  were  to  receive 
their  preliminary  training  and  then  be  forwarded  to  the 
Marine  Pre-Embarkation  Camp  at  Quantico,  Virginia,  for 
assignment  to  duty  with  combat  organizations. 

With  the  extension  of  the  draft  to  the  Navy  and  Marine 
Corps  the  personnel  problems  which  had  arisen  at  the  national 
army  cantonments  similarly  appeared  in  the  Navy  and  Marine 
Corps.  It  was  not  surprising,  therefore,  that  the  Fall  of 
1918  should  see  the  request  for  the  cooperation  of  the  Com- 
mittee on  Classification  of  Personnel  in  the  Army  with  the 
Navy  Department. 

PERSONNEL  WORK  IN  THE  NAVY 

The  urgent  need  of  the  United  States  Navy  for  a  personnel 

650 


651 


system  similar  to  that  adopted  and  used  in  the  Army  can  best 
be  shown  by  quoting  the  following  from  the  Newport  (R.  I.) 
Naval  Training  Station  Bulletin. 

EXPERIENCED  PHOTOGRAPHERS  WANTED 

A  first-class  experienced  photographer  familiar  with  dark-room 
work,  retouching  and  printing  is  desired  for  the  Newport  "Recruit," 
also  a  man  who  is  capable  of  acting  as  layout  artist.  Applicants 
should  apply  at  office  of  the  "Recruit." 

CAMERA  REPAIRMEN  NEEDED 

Heads  of  all  Departments  will  immediately  submit  to  the  Execu- 
tive Officer  a  report  of  the  number  of  men  available  for  transfer 
for  instruction  as  camera  repairmen.  Men  should  have  had  some 
previous  experience  in  making  or  repairing  cameras. 

LABORATORIANS    (MECHANICAL) 

Men  who  believe  themselves  specially  qualified  for  duty  as  Labora- 
torians  (mechanical)  at  the  Engineering  Experiment  Station,  Naval 
Academy,  Annapolis,  Md.,  will  submit  application  to  the  Materiel 
Office  through  the  heads  of  their  departments. 

The  essential  qualifications  are:  a  knowledge  of  mechanical  engi- 
neering, such  as  would  be  obtained  at  a  technical  school,  including 
courses  in  mechanical  drawing,  shop-work,  physics,  applied  mechanics, 
applied  electricity  and  steam  engineering. 

The  principal  duties  that  would  be  assigned  these  men  are:  cali- 
bration of  engineering  measuring  instruments,  such  as  thermometers, 
pressure  gauges,  etc.,  taking  observations  during  a  test  of  steam  and 
electrical  machinery;  calculating  of  results,  plotting  of  curves  and. 
making  sketches  and  .drawing. 

Materiel  Officer  will  submit  list  of  men  qualified  with  statement  of 
training  and  qualifications  in  each  case. 

Applications  for  this  duty  will  not  be  received  after  12  KX)  M.  on 
Thursday,  October  3,  1918. 

MEN  FOR  MERCHANT  MARINE 

All  men  desiring  transfer  to.  the  Officer  Material  School,  Naval 
Auxiliary  Reserve  (Merchant  Marine),  should  submit  their  applica- 
tion through  the  regular  channels. 

Men  selected  for  this  training  must  meet  the  following  qualifications: 

1.  Men  of  ability  and  officer  material. 

2.  Age — 21  to  40  inclusive. 


652 HISTORY  OF  PERSONNEL 

3.  Education  equivalent  to  at  least  completion  of  High  School 
Course,  including  good  knowledge  of  trigonometry  and 
logarithms. 

4>.  Physically  qualified  for  line  officer — standard  of  the  regular 
Navy. 

5.  Must  be  in  regular  Navy,  in  the  Naval  Reserve  Force  (any 

class)    for  general  service. 

6.  Shall  have  had  at  least  one  month's  military  training  or  its 

equivalent. 

Men  are  wanted  immediately  for  this  school.  Heads  of  depart- 
ments will  publish  this  notice. 

RAILROAD  MEN  NEEDED 

The  Bureau  of  Navigation  has  need  of  men  for  duty  as  section 
hands  in  connection  with  the  construction  of  a'  Government  Railroad 
at  Indian  Head,  Maryland. 

All  men  who  have  had  previous  railroad  experience  are  requested 
to  submit  their  names  to  the  head  of  their  department. 

Heads  of  departments  will  submit  lists  of  names  to  the  Executive 
Officer. 

Only  men  available  for  transfer  should  be  included  in  the  above 
referred  to  lists. 

MINING  ENGINEERS 

The  Bureau  of  Navigation  has  urgent  need  for  five  men  for 
inspection  of  mines,  in  connection  with  the  shipping  of  bunker  coal 
to  the  Atlantic  seaboard. 

Men  should  be  graduate  Engineers  of  high  standing  and  have  ex- 
tensive practical  experience  in  the  coal  fields  of  West  Virginia  and 
Pennsylvania  producing  low  volatile  coal. 

Men  believing  themselves  possessed  of  the  necessary  qualifications 
to  perform  this  duty  are  requested  to  immediately  submit  their 
names  to  the  Executive  Officer  via  the  head  of  their  department. 

The  foregoing  extracts  are  clear  indications  of  the  need 
in  the  Navy  for  some  scientific  system  of  ascertaining  and 
recording  an  enlisted  man's  qualifications  involving  the  use 
of  qualification  cards  and  trade  tests  and  also  some  scientific 
effort  to  ascertain  and  express  in  a  standard  language  the 
needs  of  the  Navy. 

Major  Coffin  detailed  to  the  Bureau  of  Navigation.  On 
September  15,  1918,  the  Secretary  of  the  Navy  requested 


PERSONNEL  WORK  IN  NAVY  653 

the  Secretary  of  War  to  detail  an  officer  from  the  Adjutant 
General's  Staff  to  report  to  the  Bureau  of  Navigation  of 
which  Rear  Admiral  L.  C.  Palmer  was  then  chief.  In  accord- 
ance with  this  request,  a  memorandum  of  September  21  was 
issued  placing  the  services  of  Major  Charles  R.  Coffin,  Adju- 
tant General's  Department,  Personnel  Adjutant  of  one  of  th'e 
large  Army  camps,  at  the  disposal  of  the  Personnel  Section 
of  the  Bureau  of  Navigation. 

Plan  for  Mobilization  of  the  Navy  Devised.  Major  Coffin 
reported  in  person  to  Lieutenant  Commander  Emory  Winship, 
the  Chief  of  the  Personnel  Section.  At  a  conference  at  which 
Lieutenant  Commander  Leroy  Brooks,  Lieutenant  Loughran, 
and  Chief  Clerk  Yeoman  Whitely  were  in  attendance  he 
explained  not  only  the  forms  used  in  Army  personnel  work, 
but  also  the  forms  from  the  Provost  Marshal  General's  Office 
used  in  the  induction  and  receiving  of  drafted  men.  As  a 
result  of  this  conference  the  Navy  Department  issued,  on 
September  21,  1918,  a  letter  on  the  mobilization  of  man- 
power for  the  Navy,  setting  forth  many  phases  of  the  subject 
in  detail. 

Personnel  Work  Explained  at  Naval  Training  Station. 
Subsequent  to  this  conference,  Major  Coffin  proceeded  to  the 
Naval  Training  Station  at  Newport,  Rhode  Island,  to  con- 
fer with  the  Commandant,  Captain  E.  H.  Campbell,  for  the 
purpose  of  ascertaining  how  much  of  the  Army  personnel 
system  was  adaptable  to  the  needs  of  the  Navy.  Accompany- 
ing Major  Coffin  was  Lieutenant  Commander  Raymond 
Dodge,  a  member  of  the  Committee  on  Classification  of  Per- 
sonnel in  the  Army,  who  had  been  released  from  service  with 
the  Army  for  the  purpose  of  developing  and  perfecting  cer- 
tain tests  contemplated  for  the  use  of  the  Navy  in  selecting 
naval  aviators,  gun  pointers,  signalmen,  listeners,  and  men 
for  fire  control  and  lookout  duty.  As  a  result  of  the  con- 
ference, Captain  Campbell  was  most  enthusiastic  about  the 
personnel  system  and  designated  Lieutenant  Shannon  from 
his  office  to  confer  with  Major  Coffin  and  Lieutenant  Com- 


654  HISTORY  OF  PERSONNEL 

mander  Dodge  upon  the  personnel  system  for  the  Navy.  As 
the  result  of  their  efforts  the  following  memorandum  was 
submitted  to  the  Bureau  of  Navigation: 

"SUGGESTED   PERSONNEL    CLASSIFICATION 
DIVISION 

"1.  The  Senior  Personnel  Classification  Officer  shall  be 
assigned  duty  in  the  Bureau  of  Navigation,  and  shall  be 
known  as  Head  of  the  Personnel  Classification  Division,  and 
will  act  as  assistant  to  the  Chief  of  the  Bureau  of  Navigation. 

"(a)  The  Head  of  the  Personnel  Classification  Division 
shall  be  an  officer  on  the  active  list  of  the  Navy,  appointed  by 
the  President,  but  with  the  advice  and  consent  of  the  Senate, 
from  among  the  officers  of  the  line  of  the  Navy,  not  below  the 
grade  of  Lieutenant  Commander,  for  a  period  of  four  years, 
who  shall  under  the  direction  of  the  Chief  of  the  Bureau  of 
Navigation,  be  charged  with  the  Personnel  Classification 
development  of  the  Fleet,  Bases  and  Training  Stations,  and 
be  charged  with  the  preparation  and  readiness  of  plans  for 
such  increase  that  might  be  used  in  time  of  war. 

"(b)  The  orders  issued  by  the  Head  of  the  Personnel 
Classification  Division  in  performing  the  duties  assigned  him 
shall  be  prepared  under  the  authority  of  the  Chief  of  the 
Bureau  of  Navigation,  and  his  orders  shall  be  considered  as 
emanating  from  the  Chief  of  the  Bureau  of  Navigation,  and 
shall  have  full  force  and  effect  as  such. 

"(c)  To  assist  the  Head  of  the  Personnel  Classification 
Division  in  the  Bureau  of  Navigation  in  performing  the  duties 
of  his  office,  there  shall  be  assigned  for  this  exclusive  duty  not 
less  than  officers  of  and  above  the  rank  of  Lieutenant 

Junior  Grade  of  the  Navy,  or  First  Lieutenant  of  the  Marine 
Corps. 

"(d)  The  business  of  the  Personnel  Classification  Division 
of  the  Navy  shall  be  distributed  in  such  manner  as  the  Chief 
of  the  Bureau  of  Navigation  shall  judge  to  be  expedient  and 
proper. 


PERSONNEL  WORK  IN  NAVY  655 

"(e)  The  Head  of  the  Personnel  Classification  Division 
shall  furnish  such  information  and  data  as  may  be  called  for 
by  the  Chief  of  Naval  Operations  and  the  General  Board, 
furnishing  a  copy  of  same  to  the  Chief  of  the  Bureau  of 
Navigation. 

"(f)  He  shall  advise  the  Chief  of  the  Bureau  of  Naviga- 
tion on  all  business  of  his  department  in  regard  to  foreign 
progress,  along  this  line,  with  such  comment  as  he  may  deem 
advisable. 

"(g)  In  preparing  and  maintaining  in  readiness  continu- 
ally various  forms  of  procedure  for  the  use  of  the  Fleet  and 
Naval  Training  Stations  in  time  of  war,  he  shall  frequently 
consult  with,  and  have  the  advice  and  assistance  of  the  vari-* 
ous  Bureaus,  Boards  and  Officers  of  the  Navy  Department, 
including  Marine  Corps  Headquarters  in  matters  coming 
under  their  cognizance. 

"(h)  The  Head  of  the  Personnel  Classification  Division 
shall  from  time  to  time  witness  Personnel  Classification  work 
in  the  Fleet,  and  frequently  inspect  Bases  and  Training  Sta- 
tions when  practicable. 

"(i)  He  shall  have  two  principal  Senior  Assistants,  officers 
not  below  the  grade  of  Senior  Lieutenant,  one  of  whom  pref- 
erably to  be  on  the  staff  of  the  Commander-in-Chief  of  the 
Atlantic  Fleet,  and  the  other  on  duty  at  a  Naval  Training 
Station. 

"(j)  With  each  20,000  enlisted  personnel  afloat  there  shall 
be  one  Personnel  Classification  Officer. 

"(k)  There  shall  be  assigned  to  each  Naval  Training  Sta- 
tion or  Naval  Base  one  Personnel  Classification  Officer. 

"(1)  Personnel  Classification  Officers  assigned  duty  with 
a  force  shall  keep  complete  files  of  the  force  personnel,  and 
when  practicable  verify  their  files  with  the  master  files  kept 
by  the  Senior  Personnel  Classification  Officer  in  the  Bureau 
of  Navigation  semi-annually.  Should  it  be  impracticable  to 
do  this  a  letter  will  be  forwarded  to  the  Bureau  of  Naviga- 
tion, stating  in  detail  the  reason  for  omission.  Following  a 


656 HISTORY  OF  PERSONNEL 

comparison  of  files  a  report  will  be  submitted  showing  any 
discrepancies  that  may  be  found  to  exist,  along  with  sugges- 
tions as  to  their  possible  future  elimination. 

"(m)  Personnel  Classification  Officers  afloat  shall  be 
charged  with  the  enforcement  of  the  Personnel  Classification 
Regulations,  and  with  the  distribution  of  all  orders  and  regu- 
lations of  a  general  or  circular  character  that  might  be  of 
interest  to  Flag  and  Commanding  Officers. 

"(n)  The  Senior  Personnel  Classification  Officer  shall  be 
responsible  for  the  proper  training  and  development  of  Per- 
sonnel Classification  Officers,  and  shall  make  recommenda- 
tions to  the  Chief  of  the  Bureau  of  Navigation  from  time  to 
time  that  will  increase  the  efficiency  of  the  Personnel  Classi- 
fication Division. 

"(o)  The  Senior  Personnel  Classification  Officer  shall  be 
in  charge  of  the  schools  for  Personnel  Classification  Officers, 
and  shall  keep  on  file  in  the  Bureau  of  Navigation  a  list  of 
officers  available  for  such  duty. 

"(p)  The  Head  of  the  Personnel  Classification  Division 
shall  recommend  to  the  Chief  of  the  Bureau  of  Navigation 
such  officers  as  he  deems  qualified  for  Personnel  Classifica- 
tion for  the  staffs  of  Commanders-in-Chief  and  Training  Sta- 
tions. 

"(q)  The  Head  of  the  Personnel  Classification  Division 
will  furnish  such  data  as  may  be  required  by  the  Chief  of  the 
Bureau  of  Navigation  for  his  annual  report,  showing  progress 
made  and  work  accomplished,  along  with  such  statistics  as 
might  be  of  interest." 

Captain  Campbell  later  suggested  a  change  in  paragraph 
j,  so  that  a  Personnel  Officer  would  be  provided  for  each 
vessel  afloat,  except  in  the  case  of  smaller  craft  where  the 
duties  of  the  Personnel  Officer  were  to  be  added  to  the  duties 
of  another  officer  already  on  duty.  Before  leaving  Newport, 
the  following  Qualification  Card  for  use  in  the  Navy  was 
prepared  by  Major  Coffin.  This  card  followed  the  general 
line  of  the  Soldiers'  Qualification  Card. 


PERSONNEL  WORK  IN  NAVY 


657 


1        * 

|  NAVAL  STATION  1 

STAMP  HERET  IF  LIMITED! 
SERVICE 

I 

35 

TRADE  TEST  RATINGS 

t 

-X 

cc 

RACE.. 

U 
efl 

1 

~ 
03 
U 

3 

0* 
ce 

o> 

(M 

0 

fe 

I 

INOCULATIONS 

SYMBOL 

CO 

/ALLOTMENTS  h 

M 

2 
>< 
i  ^ 

I 

? 

.j 

3 
u 

*        <*} 
j? 

^? 

fe 

1 

ISYMBOL 

0 
cri 
o 

£ 

0 

ul 

* 

'         O 
q{          0) 

TT 

S 

n 
'    U 

J      0 

:  L 

:  ; 

?  ^ 

n    C 

c^ 

< 

a 

U) 

cr 

I 
4 

£ 

UAM6I1H 

CATION. 

J  ASSIGNED  BY 
PERSONNE.I_ 

OFFICFR  AS 

SYMBOL. 

•    -4 

8;      - 

-      «. 

k      t 
%      < 
o 

^       m 

5- 

en 

s 

15- 

crt 
•I 

CM 

8 

ir 

E 

-        O 
S2 

CO 

r* 

. 

Lu 

2 

PRINT  CLEARLY.  LAST  NAME  FIRST  NAME  MIDDLE  NAME.  NUMBER 

0 

I 

SPECIAL 
QUALIFI 

a 

z 

Ul 

< 

END  OF 

SCHOOL  IN 

SYMdOL. 

X 
IU 

Ul 

I 
o 

L 

S 

a 

PI 

in  ~j 

3     S 

QC 

9    S 

1 

La 
^ 

cr 

»OO  nOAQia 

IWUAA  i  c/ir 

SURGEONS 

CJ 

a: 

O 

U) 

a 

I 
cc 

LL. 

ADDRESS  OF  FIRM? 

DEPT  SHOP  IMIND  or 
OR  BRANCH.  aiiSltlESS 

YRSAT  |T|WKLVWA&E 

SURGEON'S 

5 

£ 

?** 

I 
15 
OT2 

i 

SURGEON'S 

) 

SYMBOL 

(  •"> 

i"« 

>nc 
->c 

Xoewxs 

YRSAT  IT 

J< 
O 

CO 

1 

I  -^ 

SYMBOL 

~> 

MAIN 

OCCUPATIOM 

2 
£0 

mg 

00 
ZU 

i 

yl  1 

oc 

0- 

fee 

r 

5 

LTC 

^ 

i 

ADDITIONAL 

) 
J 

GREATEST  AUTHORITY 
OR  LEADERSHIP 

^n          'aavo  Nonvoidiivnb  AAVN 

658  HISTORY  OF  PERSONNEL 

Cessation  of  Hostilities  Halts  Personnel  Program.  The 
signing  of  the  Armistice  halted  the  work  so  favorably  begun 
in  the  Navy  and  terminated  for  war  purposes  the  close  liaison 
established  between  the  Bureau  of  Navigation  and  the  Com- 
mittee on  Classification  of  Personnel  in  the  Army,  but  not 
until  the  usefulness  and  the  necessity  of  personnel  work  in 
the  Navy  had  been  demonstrated. 

PERSONNEL  WORK  WITH  THE  MARINES 

A  cablegram  from  the  American  Expeditionary  Forces 
reading  "Thirteenth  Regiment  Marines  arrived  without  pas- 
senger lists,  locator  cards,  master  cards,  qualification  cards. 
Request  that  in  future  Marines  bring  same  records  required 
of  all  other  organizations,"  was  received  in  Washington  on 
October  12,  1918.  As  one  of  the  results  of  this  request 
the  Commandant  of  the  Marine  Corps  requested  that  an 
officer  be  detailed  from  the  Army  for  the  purpose  of  assist- 
ing in  the  installation  of  the  Army  system  of  records.  Im- 
mediate action  was  taken  on  this  request  and  Major  Coffin, 
of  the  Adjutant.  General's  Department,  who  had  already  co- 
operated with  Navy  in  explaining  the  Army  personnel  sys- 
tem, was  detailed  to  report  to  the  Adjutant-Inspector  of  the 
Marine  Corps  for  the  purpose  of  installing  the  system  used 
in  the  Army.  As  one  of  the  results  of  a  conference  with 
Brigadier  General  C.  S.  Long  on  October  22,  a  decision  was 
made  to  prepare  the  two  organizations  then  awaiting  embar- 
kation at  Quantico  with  the  necessary  papers,  and  on  the 
same  day  personnel  work  was  explained  to  Brigadier  General 
A.  W.  Catlin,  the  Commandant  at  Quantico,  who  immediately 
assigned  Second  Lieut.  D.  VanMoss  to  install  the  system, 
under  the  supervision  of  Major  Coffin.  Meanwhile,  it  had 
been  decided  at  Marine  Corps  Headquarters  to  adopt  all 
Army  forms  insofar  as  they  pertained  to  units  operating  in 
the  American  Expeditionary  Forces. 

At  Quantico,  classes  were  immediately  organized  and  in- 
struction began  in  the  preparation  of  all  forms  used  by  the 


PERSONNEL  WORK  IN  NAVY 


659 


BIRTHPLACE  OF  FATHER  OFMOTHEQ  '  I 

U 

J 
I 

J  r 

i  e/ 

in 

RATING  BEST  QUALIFIED  TO  FILL.  II 

SHMENTS 

• 

FIG.  29a.  Navy  Qualification  Card  —  Reverse. 

of 

Ul 
Z 

UJ 
H 

_OOkOUT  1 

i 
i 

7 

) 

OF  ENUSTED  MAN  HO^OKH,  ,., 

f 
< 
c. 

u 

C 

MACHINERY 

X 

SOBRIETY 

RECOMD. 

MERITORIOUS  CONDUCT  PUNI 

z 

0 

u 

UJ 

_J 

-U 

ILEADERSHI 

h 

c) 

CONTRQU 

a 
u 

Z 

Z 
<( 

Z 

7 

0 

5 

7 
i 

I 

Q 
Z 

0 

a 
z 

) 

) 

a 

ul 

) 

o 

J 

u  i 

Q 

GENERA  U 

AVIATION 

RATING 

0- 
X 
2 

1 
,/> 

ORDNANCE 

SIGNALING 

MECHANICAL 

WERSEL  IN'.— 
NAME  OTHER 

1  AKlCll/^RCC  KA, 

- 
1 
> 

0 

5 

N 

5 
5 

0 

3 

jj 

2 

ji 

I 

- 

•a 

-5 

;TR  \ENCE 
.VICE',  ORGANIZATION. 

yKATE  OR  S>PE.CIAI_ 
DUTV  PREFERRED 

ISHING 
NMENT  ' 

||  REMARKS 

COURSE: 

°  O_ 
t  "« 

=!£' 

1= 

i  _ 

^z 

INSTIT 

Igs 

5|1A 

;^ 

Co 

e 

J     0 

TALENT  FOR  FURh 
(PUBLIC  ENTERTA 

z*| 

§1 

J? 

OJ 

o  •  - 

ISCHOOLING 

H  COMMON 

s 

1 
T:^ 

wu 
X 

COLLEGE  OR 
UNIVERSITV 

||TECHNICAL 
|  COLLEGE 

|TRADE,NlGHTcm 
BUSINESS  SCHOOI 

1  SERVICE. 

1  SC.HL?  AT 

t 

; 

if 

660  HISTORY  OF  PERSONNEL 

Army  overseas  and  within  forty-eight  hours  this  work  was 
entirely  completed  for  both  the  Machine  Gun  Battalions  and 
the  Replacement  Troops  at  Quantico  which  were  about  to 
join  the  American  Expeditionary  Forces. 

Upon  the  completion  of  this  work,  similar  records  were 
prepared  for  the  remainder  of  the  personnel  stationed  at 
Quantico  and  instruction  was  given  in  the  tabbing,  classifi- 
cation and  symbol  systems  used  in  connection  with  the  Sol- 
diers' Qualification  Cards  and  in  the  preparation  of  embarka- 
tion forms.  Instructions  were  also  given  to  all  of  the  officers 
at  the  Post  on  the  Officers'  Qualification  Card  and  the  use  and 
application  of  the  Rating  Scale. 

Paris  Island.  Upon  the  completion  of  the  installation  of 
the  personnel  system  at  Quantico,  it  was  recommended  that 
the  work  be  immediately  installed  at  Paris  and  Mare  Islands, 
for  the  reason  that  the  stay  of  the  Marines  at  Quantico  was 
limited  and  the  real  functions  of  personnel  work  could  best 
be  applied  at  the  point  where  men  were  received  from  the 
draft  and  by  recruitment  into  the  service;  namely,  at  these 
two  island  camps. 

The  original  Marine  Qualification  Card  was  somewhat 
smaller  than  the  original  card  used  in  the  Army  and  even 
less  developed.  It  called  for  only  one  occupation  and  gave 
no  room  for  details.  The  policy  of  the  Marine  Corps  was 
to  send  no  man  to  France  who  had  not  qualified  as  marks- 
man, except  cooks.  Consequently  when  a  man  failed  to 
qualify  on  the  range  and  was  anxious  for  overseas  service, 
he  immediately  became  a  cook  regardless  of  whether  or  not 
he  was  familiar  with  that  occupation  and  irrespective  of  any 
other  qualifications  which  he  may  have  possessed.  It  is  not 
surprising,  therefore,  that  qualification  cards  were  not  a  mat- 
ter of  much  concern  and  were  irregularly  made  out  and  spas- 
modically kept  with  the  other  records  of  an  enlisted  man  in 
the  Marine  Corps. 

Upon  his  arrival  at  Paris  Island,  Major  Coffin  explained 
to  Brigadier  General  J.  P.  Myers,  the  Post  Commandant,  the 


PERSONNEL  WORK  IN  NAVY  661 

Army  personnel  system  and  the  Commandant  was  very  much 
impressed  with  its  usefulness  and  enthusiastically  advocated 
its  immediate  adoption.  In  addition  to  the  personnel  work 
of  the  enlisted  men  the  use  of  the  Officers'  Qualification  Card 
and  the  Rating  Scale  was  indorsed.  At  this  station,  Army 
forms,  including  the  qualification  cards,  were  prepared  for 
the  entire  personnel,  and  the  system  installed  provided  for 
the  preparation  at  the  quarantine  station  of  all  personnel 
records  and  for  a  shipping  station  which  was  to  check  out 
transferred  men  and  examine  their  records. 

At  the  direction  of  the  Post  Commandant,  General  Myers, 
Second  Lieutenant  J.  E.  Watson  was  detailed  as  Personnel 
Adjutant  for  the  Post.  A  class  composed  of  all  officers  on 
the  Island  was  formed  and  instruction  given  in  the  use  of 
the  Officers'  Qualification  Card  and  the  application  of  the 
Rating  Scale. 

Conclusion.  Major  Coffin  was  on  his  way  to  Mare  Island. 
California,  to  install  the  personnel  system  at  that  point  when 
the  signing  of  the  armistice  necessitated  his  recall  for  demo- 
bilization work,  and  as  a  consequence  the  system  was  not 
installed  at  that  depot.  This  terminated  the  activities  of  co- 
operation between  the  Marine  Corps  and  the  Personnel  or- 
ganization, but  not  before  the  Army  personnel  system  had 
been  eagerly  sought  and  heartily  endorsed  by  that  corps. 


SECTION  XIII. 
DEMOBILIZATION 

To  complete  the  history  of  the  personnel  system 
this  section  includes  in  one  short  chapter  the  resume 
of  activities  incident  to  the  reversal  of  the  mobiliza- 
tion machinery  and  the  part  which  the  personnel 
office  played  in  the  early  days  of  demobilization. 


CHAPTER  50 

DEMOBILIZATION 
EARLY  PLANNING 

As  early  as  April,  1918,  some  attention  was  given  by  the 
planning  section  to  the  problems  of  demobilization,  a  step  in 
Army  personnel  procedure  which  was  bound  to  follow  the  tri- 
umph of  allied  military  force  sooner  or  later.  Mr.  Clothier, 
on  his  way  back  from  installing  personnel  work  in  the 
A.  E.  P\,  spent  some  time  studying  the  plans  of  the  British 
Army  to  demobilization.  He  rendered  a  very  complete  report 
to  the  Committee  and  it  was  in  turn  called  to  the  atten- 
tion of  The  Adjutant  General  of  the  Army  and  to  the  Secre- 
tary of  War.  The  report  outlined  the  various  facts  which 
would  have  to  be  taken  into  consideration  in  demobilization. 
This  English  plan  called  for  demobilization  largely  in  terms 
jf  industrial  needs  and  had  been  arrived  at  after  careful  con- 
sideration of  other  plans  based  largely  upon  military  moves. 
The  final  section  of  this  report  suggested  certain  principles 
which  would  have  to  be  considered  by  the  American  Army  in 
demobilization  and  further  called  attention  to  the  way  in  which 
present  personnel  organization  could  function  in  the  matter. 

The  Organization  Chart  of  the  Committee  of  November  8, 
1918,  (when  the  organization  was  part  of  the  General  Staff), 
as  illustrated  in  Figure  3  of  Volume  II  (The  Personnel  Man- 
ual) shows  a  demobilization  unit  as  part  of  the  planning  sub- 
section. The  investigations  then  being  carried  on,  relative  to 
demobilization,  were  under  the  direction  of  Lt.  Col.  J.  J.  Coss 
and  Lt.  Col.  R.  C.  Clothier,  in  addition  to  the  many  other 
duties  of  these  officers  at  that  time.  In  this  work  they  came  in 
contact  with  a  committee  on  this  subject  at  the  War  College, 

665 


666  HISTORY  OF  PERSONNEL 

presented  Mr.  Clothier's  report  on  the  English  plan  of  de- 
mobilization to  this  committee  and  kept  in  touch  with  plans 
which  were  being  developed  there.  Nothing  definite  was  ac- 
complished except  possibly  to  clear  the  ground  for  a  recon- 
sideration of  the  problem.  Little  was  accomplished  as  none 
appeared  to  realize  that  the  war  would  end  so  soon  and  Army 
officers  at  that  time  were  interested  in  no  other  problem  than 
that  of  winning  the  war. 

PLANS  PROPOSED  IN  NOVEMBER,  1918 

With  the  signing  of  the  armistice  demobilization  plans  be- 
came at  once  a  topic  of  absorbing  importance.  The  War  De- 
partment, the  Labor  Department  and  the  War  Industries 
Board  (particularly  through  the  War  Labor  Policies  Board) 
all  took  up  the  question  of  demobilization  methods. 

The  advocates  of  industrial  demobilization  advanced 
the  belief  that  the  attention  of  the  country  should  be  shifted 
from  Army  needs  to  the  needs  of  production  on  a  peace  basis, 
and  that  considerations  of  Army  organization  and  speed  of 
discharge  should  be  viewed  as  of  secondary  importance.  They 
did  not  sufficiently  realize  at  the  time  that  any  plan  for  dis- 
charging men  on  a  priority  schedule  of  needed  occupations, 
made  perfectly  practicable  through  the  classification  system  of 
the  Army,  could  not  be  operated  unless  the  needs  of  the  coun- 
try for  labor  of  each  sort  could  be  expressed  on  a  time 
schedule.  No  machinery  exact  enough  to  determine  these  needs 
existed;  furthermore,  industry  was  so  hesitant  about  the  re- 
sumption of  peace  production  that  it  could  hardly  predict 
needs  two  weeks  in  advance. 

The  plan  of  demobilization  which  was  accepted  took  as  its 
first  principle  military  need :  units  were  not  to  be  disorganized 
by  partial  demobilization,  but  would  be  demobilized  in  blocks 
in  the  order  in  which  their  discharge  would  least  decrease  mil- 
itary efficiency.  Every  effort  was  made  to  carry  out  demobiliza- 
tion as  rapidly  as  safety  permitted  and  economy  demanded. 
Within  this  program  the  known  needs  of  industry  were  met  by 


DEMOBILIZATION  667 

giving  wherever  possible  preferential  discharge  to  men  actually 
called  for  by  their  previous  employers.  Conditions  of  unem- 
ployment which  might  arise  from  too  rapid  discharge  were 
considered,  and  provision  was  made  for  checking  demobiliza- 
tion from  camps  discharging  into  an  overcrowded  labor  market. 
Weekly  reports  prepared  jointly  by  the  Labor  Department 
and  the  War  Industries  Board  were  used  as  an  index  of  con- 
ditions. 

GENERAL  PROCESS  OF  DEMOBILIZATION 

The  War  Department  commenced  demobilization  within  a 
few  days  after  the  signing  of  the  armistice.  A  telegram  of 
November  14,  from  The  Adjutant  General  outlined  the  gen- 
eral steps  to  be  taken  in  separating  officers  and  enlisted  men 
from  the  service.  The  telegram  closed  with  this  sentence: 

"The  preparation  and  disposition  of  records  pertaining  to 
discharge  of  officers,  enlisted  men  and  organizations  will  be 
under  the  supervision  of  the  Camp  Personnel  Adjutant 
who  will  be  responsible  that  the  records  are  complete  and 
conform'  to  instructions,  and  for  the  forwarding  of  the 
records  to  The  Adjutant  General  of  the  Army." 

This  telegram  definitely  established  that  the  personnel 
adjutant  would  handle  the  papers  incident  to  separation,  just 
as  he  had  previously  handled  them  in  the  case  of  receiving 
selective  service  men  into  camp. 

Meanwhile,  the  personnel  and  functions  of  the  Miscellan- 
eous Section,  Personnel  Branch,  Operations  Division,  General 
Staff,  were  transferred  to  the  control  of  The  Adjutant  Gen- 
eral of  the  Army  (see  Chapter  9).  The  personnel  adjutants 
who  were  responsible  for  the  demobilization  procedure  in  the 
camps  remained  under  the  jurisdiction  of  the  Classification 
Division. 

Instructions  as  to  demobilization  were  sent  out  by  tele- 
gram, letter,  circular  and  General  Orders  from  the  War 
Department.  These  averaged  more  than  one  a  day  from 


668  HISTORY  OF  PERSONNEL 

November  14.  1918,  to  the  end  of  January,  1919.  These  in- 
structions were  concerned  with  what  to  do  but  seldom  stated 
how  the  many  details  were  to  be  carried  out.  Each  camp  had 
to  develop  a  procedure  by  which  the  many  details  could  be 
carried  out  in  an  orderly  and  efficient  manner.  Needless  to 
add,  some  camps  developed  excellent  organizations,  while 
others  did  not  do  so  well. 

•  In  order  to  facilitate  the  work  in  all  camps,  visits  were 
made  to  several  camps  in  order  to  see  how  the  orders  were 
carried  out  and  then  a  "Memorandum  on  Separation  of  En- 
listed Men  from  the  Military  Service"  was  prepared  and 
issued  on  December  6.  This  memorandum  was  "issued  for  the 
information  of  all  concerned  and  it  is  suggested  that  it  be 
published — with  necessary  and  appropriate  changes — as  a 
camp  memorandum."  Later  another  memorandum  was  issued 
"On  Separation  of  Enlisted  Men  from  the  Military  Service: 
Suggested  Organization  of  Procedure  in  Office  of  Company 
Commander."  It  gave  in  detail  the  procedure  whereby  a  com- 
pany commander  had  prepared  the  papers  of  60  enlisted  men 
a  day  for  separation  from  service.  Up  to  that  time  it  had 
been  considered  that  the  preparation  of  papers  of  15  men  a 
day  was  a  good  day's  work  for  a  company  commander. 

On  January  21,  a  blue-print  showing  the  organization  of 
the  personnel  office  (see  Figure  30)  was  issued  by  the  Classifi- 
cation Division,  Adjutant  General's  Office,  together  with  a 
sheet  of  explanatory  notes.  On  the  same  day  a  letter  from 
the  Adjutant  General's  Office  authorized  the  force  of  7  officers 
and  200  enlisted  men  in  the  personnel  office  of  a  depot  Brigade 
Camj)  to  be  cut  down  to  5  officers  and  110  enlisted  men. 
And  on  January  22,  an  "Appendix:  Separation  of  Enlisted 
Men  from  the  Military  Service"  was  issued.  This  appendix 
was  intended  to  bring  the  December  sixth  set  of  instructions 
up  to  date  and  in  harmony  with  all  the  orders  issued  since 
that  time. 


DEMOBILIZATION 


669 


UT/NT 


NEL 


PERS 


^ 

p 

*•< 

II 

^>  E 
XQ 


5^ 


§> 


^ 


3| 

^fcS 


y  U  dU/ 


SvipjDnuojpuD 


£ 


-  ru/so./ 


o)  9f>/s  puo 


ra//j  l-c 


(5 
O 


rf  OlfO/ftf  -9  3U  O^rt  tu  , 


670  HISTORY  OF  PERSONNEL 

COOPERATION  WITH  DEPARTMENT  OF  LABOR 

As  the  employment  problem  increased  in  magnitude  the 
Personnel  Office  made  every  effort  to  facilitate  the  coordina- 
tion effected  between  tfce  Department  of  Labor  and  the  War 
Department  in  the  placement  of  discharged  soldiers  in  indus- 
try. Because  of  information  at  its  disposal  concerning  the 
qualifications  of  discharged  men  and  because  of  its  control 
over  the  process  of  demobilization,  the  Camp  Personnel  Office 
was  in  a  position  to  cooperate,  and  it  did  cooperate  with  the 
United  States  Employment  Service,  the  service  established  by 
the  Department  of  Labor  at  the  military  stations  to  function 
as  employment  clearing-houses  and  guide  the  soldier  back  into 
civil  industrial  pursuits. 

CONCLUSION 

At  the  time  of  writing  this  chapter  (February,  1919)  the 
procedure  of  demobilization  was  still  in  a  state  of  develop- 
ment. The  confusion  caused  by  constantly  changing  instruc- 
tions was  being  gradually  corrected  by  the  stabilization  and 
amplification  of  instructions,  and  the  work  of  the  inspectors. 
But  in  this  time  the  process  had  been  shortened,  and  although 
far  from  perfected,  approached  a  standard  of  efficiency. 


APPENDIX  I 

PERSONNEL  OF  THE  COMMITTEE  ON  CLASSI- 
FICATION OF  PERSONNEL  IN  THE 
ARMY  AND  ASSOCIATES 

I.    THE  COMMITTEE  ON  CLASSIFICATION  OF 
PERSONNEL  IN  THE  ARMY 

Roster  of  members  who  have  served  on  the  Committee  from  its 
formation  on  August  5,  1917,  to  its  absorption  by  the  General  Staff, 
September  18,  1918. 

Walter  Dill  Scott,  Director.  Director,  Bureau  of  Salesmanship 
Research,  Carnegie  Institute  of  Technology,  Pittsburgh. 

E.  L.  Thorndike,  Chairman.  Professor  of  Educational  Psychology, 
Teachers  College,  Columbia  University,  New  York. 

W.  V.  Bingham,  Executive  Secretary.  Head  of  Division  of  Ap- 
plied Psychology,  Carnegie  Institute  of  Technology,  Pittsburgh. 

J.  R.  Angell,  Dean  of  the  Faculties,  University  of  Chicago, 
Chicago. 

R.  C.  Clothier,  Assistant  to  Vice  President,  A.  M.  Collins  Mfg. 
Co.,  Philadelphia. 

John  J.  Coss,  Assistant  Professor  of  Philosophy  and  Business 
Ethics,  Columbia  University,  New  York. 

W.  R.  DeField,  Supervisor  of  Systems,  Montgomery  Ward  &  Co., 
Chicago. 

Raymond  Dodge,  Professor  of  Psychology,  Wesleyan  University, 
Middletown,  Conn. 

H.  L.  Gardner,  Director  of  Employment,  Cheney  Bros.  Silk  Co., 
South  Manchester,  Conn. 

William  Browne  Hale,  Attorney.  Kelly,  Hale,  Dammann  & 
Coolidge,  Chicago. 

P.  J.  Reilly,  Employment  Manager,  Dennison  Manufacturing  Co., 
Framingham,  Mass. 

Winslow  Russell,  Agency  Manager,  Phoenix  Mutual  Life  Insur- 
ance Co.,  Hartford,  Conn. 

671 


672  HISTORY  OF  PERSONNEL 

J.  F.  Shepard,  Associate  Professor  of  Psychology  and  Supervisor 
of  Building  Construction,  University  of  Michigan,  Ann  Arbor, 
Mich. 
Edward  K.  Strong,  Jr.,  Professor  of  Psychology,  George  Peabody 

College   for  Teachers,  Nashville,  Tenn. 

J.  J.  Swan,  Consulting  Mechanical  Engineer,  New  York  City. 
L.    M.    Terman,    Professor   of    Educational    Psychology,   Stanford 

University,  California. 
J.  B.  Watson,  Professor  of  Psychology,  John  Hopkins  University, 

Baltimore. 
R.  M.  Yerkes,  Professor  of  Psychology,  University  of  Minnesota, 

Minneapolis. 

In  August,  1917,  the  Committee  consisted  of:  Messrs.  Scott, 
Thorndike,  Bingham,  Angell,  Clothier,  Dodge,  Gardner,  Shepard, 
Strong,  Terman,  Watson  and  Yerkes. 

At  the  conclusion,  September  18,  1918,  the  Committee  consisted 
of:  Messrs.  Scott,  Thorndike,  Bingham,  Angell,  Clothier,  Coss, 
Dodge,  Hale,  Reilly,  Russell,  Strong,  Swan,  Watson  and  Yerkes. 

II.     MILITARY    ASSOCIATES    IN    THE    WORK    OF 
THE  COMMITTEE 

Major,  later  Lt.  Col.,  Grenville  Clark,  A.G.D.,  Military  Repre- 
sentative, August  5,  1917,  to  April  23,  1918. 

Lt.  Col.,  later  Colonel,  A.  M.  Ferguson,  A.G.D.,  Military  Repre- 
sentative, April  23,  1918,  to  September  18,  1918.  He  continued 
in  charge  as  Chief,  Miscellaneous  Section,  Personnel  Branch, 
Operations  Division,  General  Staff,  until  November  23,  1918;  then 
as  Chief,  Classification  Division,  Adjutant  General's  Office. 

Brig.  Gen.  R.  I.  Rees,  General  Staff. 

Colonel  D.  Y.   Beckham,  Adjutant  General's  Department. 

Lt.  Col.  R.  H.  Kimball,  General  Staff. 

Lt.  Col.  Royal  Mattice,  Adjutant  General's  Department. 

Lt.  Col.  E.  N.  Sanctuary,  Adjutant  General's  Department. 

Major  C.   R.   Coffin,   Adjutant  General's  Department. 

Major  S.   A.   Friede,  Quartermaster  Corps. 

Major  J.  W.  Hayes,  Medical  Department,  S.  C. 

Major  B.  J.  Kempter,  Adjutant  General's  Department. 

Major  J.    Perry  Moore,  Adjutant  General's  Department. 

Major  D.  W.  K.  Peacock,  Coast  Artillery  Corps. 

Major  H.  M.  Rayner,  General  Staff. 

Major  John  W.  Sorrelle,  Adjutant  General's  Department. 

Major  Lawrence  H.  Whiting,  Adjutant  General's  Department. 


APPENDIX  673 


Major  George  T.  Wilhelm,  Adjutant  General's  Department. 
Captain  E.  O.  Buhler,  Adjutant  General's  Department. 
Captain  C.  C.  Dilley,  Adjutant  General's  Department. 
Captain    James    Gregg,    Adjutant    General's    Department. 
Captain  Joseph  M.  Larimer,  Adjutant  General's  Department. 
Captain   M.    II.   Trabue,  Adjutant  General's  Department. 
1st  Lt.  J.  W.  Dissette,  Air  Service,  DMA. 
1st  Lt.  J.   F.   Haas,  Adjutant  General's  Department. 
1st  Lt.   H.  J.   Ryon,  Adjutant  General's  Department. 
1st   Lt.   J.   R.   Sedgwick,   Adjutant  General's  Department. 
2nd  Lt.  R.  J.   Byrnes,  Adjutant  General's  Department. 

III.      CIVILIAN    SUPERVISORS     AND     CAMPS     IN 

WHICH  THEY  ORIGINALLY  INSTALLED 

PERSONNEL  WORK 

*  Indicates  those  that  served  throughout  the  life  of  the  work. 
Philip   Brasher,  Winchester   Repeating  Arms  Co.,  New  Haven. 

Camp  Jackson,  S.  C.,  Camp  Hancock,  Ga.,  and  Camp  Wheeler, 

Georgia. 
William  Clark*,   International   Harvester  Co.,  Chicago. 

Camp   Travis,   Tex.,   Camp   Logan,   Tex.,  and  Camp   McArthur, 

Texas. 
J.   Walter  Dietz,   Western   Electric   Co.,  Chicago.    . 

Camp    Pike,   Ark.,   Camp    Beauregard,   La.,   and   Camp   Shelby, 

Miss. 

C.   R.   Dooley,  Westinghouse  Electric  and  Mfg.  Co.,  East  Pitts- 
burgh. 

Camp  Sherman,  O. 
N.  F.  Dougherty,   Pennsylvania  Railroad,  Philadelphia. 

Camp  Lee,  Va.,  and  Camp  Mills,  N.  Y. 
M.  M.  Jones,  Thomas  A.  Edison,  Inc.,  Orange,  N.  J. 

Camp  Upton,  N.  Y. 
Robert  B.  King,  Hyatt  Roller  Bearing  Co.,  Newark,  N.  J. 

Camp  Meade,  Md. 
W.  S.   MacArthur*,  Armour  and  Company,  Chicago. 

Camp  Custer,  Mich.,  and  Camp  Cody,  N.  M. 
R.  H.  Puffer*,  Larkin  Company,  Buffalo. 

Camp  Grant,  111.,  Camp  Bowie,  Tex.,  and  Camp  Doniphan,  Okla. 

Later  commissioned   Captain,   A.G.D.,   and  placed  in  charge  of 

personnel   work,   Headquarters,  S.O.S.,   London,   England. 
Philip  J.  Reilly*,  Dennison  Mfg.  Co.,  Framingham,  Mass. 


674  HISTORY  OF  PERSONNEL 

Camp  Devens,  Mass.,  and  Camp  Greene,  N.  C. 
Dr.  William  Alfred  Sawyer,  American   Pulley  Co.,  Philadelphia. 

Camp  Dix,  N.  J.,  Camp  Sevier,  S.  C.,  and  Camp  Wadsworth, 

S.  C. 
J.  E.  Sheridan,  Crane  Co.,  Chicago. 

Camp  Funston,  Kansas. 
Dr.  E.   K.   Strong,  Jr.*,  George   Peabody  College   for  Teachers, 

Nashville, 

Camp  Taylor,  Ky.,  and  Camp  Kearney,  CaL 
Arthur  J.  Turner*,  Washington  Water  Power  Co.,  Spokane. 

Camp  Lewis,  Wash.,  and  Camp  Fremont,  Cal. 
Kendall  Weisiger*,  Southern  Bell  TeL  and  TeL  Co.,  Atlanta, 

Camp  Gordon,  Ga.,  Camp  McClellan,  Ala.,  Camp  Sheridan,  Ala., 

and  Camp   Forrest,  Ga. 
C.  J.  Whipple,  Hibbard,  Spencer,  Bartlett  Co.,  Chicago. 

Camp  Dodge,  Iowa.    • 

IV.    CIVILIAN    SUPERVISORS    ASSOCIATED    WITH 
THE  COMMITTEE  AS  THE  WORK  EXTENDED 

C.  F.  Axelson,  Northwestern  Mutual  Life,  Chicago. 

C.  R.  Beard,  Sears  Roebuck  Co.,  Chicago. 

C.  R,  Chase,  Ford  Company,  Chicago. 

O.  L.  Davis,  Jr.,  O.  L.  Davis  Lumber  Co.,  Trinidad,  Colo. 

E.  M.  Delabarre,  Library  Bureau,  Cambridge,  Mass. 

Alvin  E.  Dodd,  Retail  Research  Association,  New  York  City. 
(Supervisor  in  connection  with  personnel  specifications  for 
officers.) 

H.  E.  French,  Edison  Co.,  Chicago. 

C.  M.  Fuess,  Amherst  College,  Amherst,  Mass. 

A.  A.  Goes,  Goes  Lithographing  Co.,  Chicago. 

Harry  Gregg,  Textile  Manufacturer,  Nashua,  N.  H. 

S.   J.   Gummere,   Pennsylvania   Railroad,   Philadelphia. 

(Later  commissioned  Captain,  A.G.D.,  and  appointed  Per- 
sonnel Adjutant,  Camp  Humphreys,  Va.,  subsequently  being 
ordered  abroad  and  made  Personnel  Adjutant,  Base  Section 
No.  5,  Brest,  France.) 

E.  R.  Halliday,  Real  Estate,  Columbus,  O. 

J.  W.  Harrison,  Farm  Loans,  Fort  Worth. 

L.  B.  Hopkins,  General  Electric  Co.,  Pittsfield,  Mass. 
(Supervisor  in  connection  with  trade  tests.) 

G.  M.  Leonard,  Real  Estate  and  Law,  Springfield,  Mass. 

W.  H.  Lillard,  Tabor  Academy,  Marion,  Mass. 


APPENDIX 


675 


S.  B.  Mathewson,  Southern  Bell  Tel.  and  Tel.  Co.,  Atlanta. 

N.  H.  Noyes,  Eli  Lilly  and  Co.,  Indianapolis. 

D.  J.  O'Connor,  Swift  &  Co.,  Chicago. 

J.  F.  Page,  A.  M.  Collins  Mfg.  Co.,  Philadelphia. 

Beardsley    Rural,   Carnegie    Institute   of   Technology,    Pittsburgh. 

(Supervisor  in  connection  with  trade  tests.) 
Harry  Wellman,  The  Lowney  Co.,  Boston. 

(Supervisor  in  connection  with  development  battalions.) 


V.      CIVILIAN  ASSISTANTS 


J.  A.  Balcom  (T.T.)1 
Wm.   H.    Barnes    (P.S.) 
Ralph  T.   Bickell    (C.D.O.) 
Albert  G.   Borden    (R.S.I.) 
Wm.    B.    Bosworth    (C.D.O.) 
Storm   V.   Boyd    (T.T.) 
Lawrence  L.   Brown    (W.S.E.) 
Norman   K.   Bryant    (W.S.E.) 
John   C.    Burg    (C.D.O.) 
W.   A.   Caperton    (R.S.I.) 
Walter  M.  Case    (P.S.) 
J.  Crosby  Chapman   (T.T.) 
E.  M.  Cummins    (C.D.O.) 
Francis  M.  Currier   (P.S.) 
Ithel  B.  Davies   (C.O.) 
T.  M.  DeBlois  (T.T.) 
L.  H.  Dodge   (R.S.I.) 
Roger  F.  Evans    (T.T.) 
John  Norris  Field   (T.T.) 
Mervin  G.  Filler  (W.S.E.) 
Lewis  R.  Frazier   (C.D.O.) 
E.  H.  Furman   (P.S.) 
P.  N.  Golden  (T.T.) 
Benj.  H.  Gordon   (C.O.) 
Edgar  B  Graves  (C.O.) 
T.  S.  Hanson   (W.S.E.) 
Walter  B.   Hill    (C.D.O.) 
Chauncey  G.  Hobart  (C.D.O.) 
Thomas  F.  Holgate   (R.S.I.) 


G.  B.  Hotchkiss  (C.O.) 
James  A.  James    (R.S.I.) 
Carl  W.   Jones    (W.S.E.) 
Truman   L.    Kelley    (T.T.) 
T.  J.   Kirby   (T.T.) 
Paul  J.  Kruse  (T.T.) 
I.   H.   Lehman    (P.S.) 
Gabriel   I.   Lewis    (C.O.) 
James  H.  Lewis   (C.O.) 
Robert  D.  List    (W.S.E.) 
C.  K,  Lyans  (T.T.) 
Geo.  W.  Mabey   (T.T.) 
W  L.  MacCoy   (C.O.) 
Hugh  F.  Magee   (W.S.E.) 
Robert   McDougal    (R.S.I.) 
Franklyn  Meine   (T.T.) 
W.  J.  Moore   (T.T.) 
Leonard  Outhwaite  (C.O.) 
Geo.  F.  Parsons   (T.T.) 
Gilbert   S.    Pattillo    (C.O.) 
Rudolph   Pintner    (T.T.) 
A.  U.  Pope   (R.S.I.) 
C.  L.  Procter  (W.S.E.) 
Leo  Ranney   (C.O.) 
R.  M.  Reinhold  (T.T.) 
Sidney  Rheinstein   (W.S.E.) 
A.  C.  Robinson  III  (C.D.O.) 
E.  S.  Robinson   (T.T.) 
Stanley  Roth    (W.S.E.) 


1  The  abbreviations  stand  for  the  following  divisions  of  the  Committee's 
work:  (C.O.)  Committee  Office.  (T.T.)  Trade  Test  Division.  (W.S.E.)  War 
Service  Exchange.  (C.D.O.)  Central  Distributing  Office.  (P.S.)  Personnel 
Specifications.  (R.S.I.)  Rating  Scale  Instructor*. 


676  HISTORY  OF  PERSONNEL 

H.  O.  Rugg  (C.O.)  L.  L.  Thurstone   (T.T.) 

Archie  H.  Samuels    (C.O.)  Hathaway  Watson   (C.D.O.) 

Milton  M.   Samuels    (C.O.)  Max  Watson  (T.T.) 

F.  E.  Schuchman    (T.T.)  Harvey  E.  Weeks    (W.S.E.) 

J.  H.  Sengstaken   (T.T.)  Graham  C.  Wells    (W.S.E.) 

Walter   P.    Shatts    (T.T.)  G.    M.    Whipple    (R.S.I.) 

Henry  P.  Shaw   (C.D.O.)  E.   A.  Wood   (R.S.I.) 

Gothair  Smith    (R.S.I.)  S.  E.  Wright   (C.D.O.) 

C.  W.  Stone    (T.T.)  A.  T.  Wylie  (T.T.) 
Herbert  A.  Toops   (T.T.) 

ORIGINAL  PERSONNEL  OFFICERS 
NATIONAL  ARMY 

September,  1917 

Camp  Division  Personnel  Officer 

Custer    85th Capt.  Wm.  Hendrie 

Devens     76th Capt.  Lawrence  Ewing 

Dix  78th Capt  Frank  Knox 

Dodge    88th Capt.  B.  R.  Honeyman 

Funston    89th Capt.  J.  O.  Strutz 

Gordon 82nd'. Capt.  Richard  L.  Boyd 

Grant  86th Capt.  L.  H.  Whiting 

Jackson    81st Capt  Frank  W.  Ehrlich 

Lee  80th Capt  J.  Straughan  Downing 

Lewis    91st Capt  D.  J.  Coman 

Meade    79th Capt.  T.  S.  Dunn 

Pike    87th Capt  James  T.  Dortch 

Sherman    83rd Capt.  Wayman  C.  Lawrence 

Taylor   84th Capt  C.  A.  Edwardsen 

Travis  90th Capt.  J.  Perry  Moore 

Upton    77th Capt  Francis  W.  Perry 

ORIGINAL  PERSONNEL  OFFICERS 
NATIONAL  GUARD 

November,  1917 

Camp  Division  Personnel  Officer 

Beauregard  39th Capt.  D.  E.  Beams 

Bowie 36th Capt  P.  R.  Crippen 

Cody    34th Capt  N.  W.  Larimore 


APPENDIX  677 


Doniphan    35th Capt.  W.  D.  Moreland 

Hancock  28th Capt.  C.  B.  Altemose 

Kearney  40th Capt.  B.  J.  Kempter 

Logan   33rd Capt.  W.  C.  Grierson 

McArthur   32nd Capt.  E.  H.  Allen 

McClellan   29th Capt.  D.  W.  Simons 

Mills  41st Capt.  G.  S.  Tait 

Sevier   30th Capt.  W.  H.  Kyle 

Shelby 38th Capt.  J.  R.  MacManaway 

Sheridan    37th Capt.  Royal  Mattice 

Wadsworth 27th Capt.  E.  E.  Gauche 

Wheeler  .  ..31st.,  ..Lieut.  F.  A.  Feld 


APPENDIX  II 

ADDRESS  BY  NEWTON  D.  BAKER,  SECRETARY 
OF  WAR  AT  EIGHTH  SCHOOL  FOR  PER- 
SONNEL ADJUTANTS,  AUGUST,  1918 

It  is  a  very  great  pleasure  to  me  to  be  here  this  morning  and 
meet  this  class.  You  represent  a  novel  contribution  to  the  making 
of  armies.  War  is  essentially  revolutionary  to  a  people  whose  arts 
hare  been  those  of  peace  and  whose  occupations  have  been  for  the 
most  part  those  of  industry.  The  revolution  is  widespread,  funda- 
mental and  thorough-going,  and  I  can  perhaps  illustrate  to  you 
more  fully  what  I  mean  by  telling  you  of  an  incident  which  recently 
took  place  in  France,  than  by  any  further  attempt  to  define  the 
thought.  This  incident  deals  with  the  change  in  the  attitude  of  men, 
of  young  men,  toward  life  as  brought  about  by  their  preoccupation 
in  a  war  for  a  sacred  cause.  Mr.  Fosdick  told  me  that  the  Y.  M.  C.  A. 
Director  had  assembled  a  group  of  600  or  600  men,  and  was  having 
one  of  those  composite  evenings  which  are  characteristic  of  the 
social  and  semi-religious  activities  of  the  Y.  M.  C.  A.,  when  it  sud- 
denly occurred  to  him  that  he  did  not  know  what  was  in  the  minds 
of  those  soldiers.  If  he  had  been  in  the  United  States  he  would 
have  known  the  virtues  to  which  young  men  aspired,  and  the  vices 
against  which  they  struggled,  but  here  was  a  new  group.  It  was 
no  longer  the  civilian  company  that  he  used  to  see  in  the  Y.  M.  C.  A. 
halls  of  the  United  States.  And  so  for  ins  own  guidance  and  in- 
formation he  passed  around  papers  and  pencils  and  asked  each 
man  in  that  company  to  write  and  pass  up  to  him  what  he  regarded 
as  the  three  cardinal  sins.  When  the  vote  was  taken  it  was  unani- 
mous on  No.  1;  nearly  unanimous  on  No.  2;  very  largely  preponderat- 
ing on  No.  3,  and  those  sins  were  as  follows: 

The  sin  upon  which  they  were  unanimous  as  No.  1  was  COW- 
ARDICE. 

The  sin  upon  which  they  were  substantially  unanimous,  No.  2, 
was  SELFISHNESS — not  sharing  with  your  partner  in  the  trench, 
not  taking  your  share  of  the  hardships  of  the  military  life.  And  the 
sin  upon  which  they  agreed  by  majority  for  the  third  choice  was 
BIG  HEAD.  Now  that  is  a  complete  revolution  in  the  mind  oJ 

678 


APPENDIX  679 


youth  toward  life.  Those  600  young  men,  if  they  had  been  in  the 
United  States,  and  there  had  been  no  war,  would  have  been  en- 
gaged in  getting  ahead,  each  for  himself,  probably  making  money, 
preparing  for  or  making  a  career,  ambitious  and  struggling.  The 
sins  which  they  would  have  regarded*s  essentially  the  most  to  be 
avoided  would  doubtless  have  been  the  evils  of  intemperance,  the 
social  evils,  lying,  stealing,  and  that  sort  of  thing;  but  here,  caught 
up  in  the  clouds,  as  it  were,  by  this  great  concentrated  enterprise 
which  requires  a  new  set  of  virtues,  an  unused  set  of  talents,  these 
men  are  no  longer  thinking  about  the  things  which  in  private  and 
civil  life  are  the  things  which  they  have  to  struggle  about,  but  they 
are  ambitious  now  to  be  brave,  they  are  struggling  now  to  be  gen- 
erous and  unselfish,  and  they  are  filled  with  a  fine  desire  to  be 
lowly. 

I  think  that  illustrates  the  point  I  want  to  make,  it  illustrates  it 
in  this  way:  the  army  is  a  new  calling  to  nearly  everybody  in 
it.  The  men  are  no  longer  assorted  and  assessed  now  by  their 
ability  to  do  the  things  which  in  private  life  make  success. 
A  man  might  have  the  ability  to  accumulate  money,  which,  say  Mr. 
Rockefeller  had,  and  might  be  totally  devoid  of  the  talents  required 
of  a  soldier — I  don't  know  whether  Mr.  Rockefeller  has  any  military 
talents  or  not,  there  is  nothing  personal  in  the  illustration — but  he 
might  have  Mr.  Rockefeller's  ability  to  organize,  business  and  in- 
dustry and  accumulate  wealth,  and  yet  not  have  the  sort  of  talent 
which  in  this  emergency  would  entitle  him  to  a  commission. 

And  in  making  this  assortment  of  persons  we  are  under  the 
unhappy  inhibition  of  taking  any  man's  judgment  of  himself.  There 
are  very  few  of  us,  even  in  normal  circumstances,  where  we  hav* 
devoted  a  lot  of  time  to  the  study  of  talents,  who  know  what  we 
are  fitted  for.  We  begin  in  our  childhood  to  drift  in  a  sort  of  way. 
I  suspect  many  of  you  could  reproduce  my  experience  in  that. 
When  I  was  very  little  I  was  sure  I  was  going  to  be  a  preacher, 
because  my  mother  told  me  so.  A  little  later  I  was  sure  I  was 
to  be  a  doctor,  because  my  father  was  a  doctor.  When  I  began  to 
stand  a  little  on  my  own  feet  about  the  business  I  had  an  ambition 
to  be  a  college  professor,  and  it  took  me  a  long  time  to  adjust 
myself  to  the  fact  that  I  did  not  know  enough  to  be  a  college  pro- 
fessor. And  finally  I  studied  law,  and  practiced  law,  as  the  result, 
perhaps,  of  a  continuous  practice  of  self-appraisement  and  self- 
assessment  and  seeking  to  find  the  place  in  life  where  such  talents 
or  capacities  as  I  thought  I  had  in  any  degree  might  be  of  a  maxi- 
mum usefulness.  And  yet  it  is  true  with  me  as  with  most  other 
people,  there  always  remains  a  doubt  as  to  whether  the  career  chosen 


680  HISTORY  OF  PERSONNEL 

and  brought  about  by  them  is  the  wisest  career  after  all,  and  we 
constantly  see  in  life  men  who  have  achieved  success  in  the  pro- 
fessions who  regard  their  professional  occupation  as  a  very  sorry 
excuse  for  the  things  they  could  have  done  best.  ...  I  have  no 
doubt  that  all  of  you  have  fed  the  same  experience,  many  of  you, 
perhaps,  that  I  have  had  not  daily  but  hourly,  of  men  coming  to 
me  and  saying:  "I  am  doing  so  and  so."  I  say  "Yes,  you  are  doing 
it  well,"  and  they  say,  "but  if  I  was  just  permitted  to  turn  aside 
and  do  that  thing  I  would  do  it  so  much  better."  It's  the  same 
spirit  as  when  men  are  playing  checkers.  The  bystander  is  quite 
sure  he  knows  how  to  win  the  game.  It  is  the  occupation  we  see. 
over  the  fence  and  not  that  in  which  we  are  absorbed  that  seems 
to  us  the  true  field  for  our  endeavors.  So  that  in  making  an  army 
we  are  not  in  a  position  to  accept  a  man's  own  estimation  of  his 
fitness.  And  no  matter  if  a  man  has  set  his  heart  on  the  job,  that 
is  no  assurance  of  his  fitness. 

And  so  we  come  down  now  to  the  things  you  gentlemen  are  to  do. 
Here  we  are  making  a  cross-section  or  series  of  cross-sections  of 
the  United  States.  We  are  taking  men  from  the  forests  of  the 
Northwest,  and  the  cotton  fields  of  the  South,  from  every  trade  and 
occupation,  from  every  economic  and  social  status  of  life  and 
grouping  them  advantageously.  We  are  not  getting  the  men  of 
the  same  size  in  the  same  place,  but  all  sizes  in  all  places.  We 
are  getting  this  agglomerate  of  men,  selected  vicariously  and  by 
chance,  as  it  were,  into  great  groups.  We  have  no  time  for  men 
to  grow  up  into  those  groups  evolved  by  association,  but  we  have 
to  have  a  selective  process  by  which  we  will  get  the  round  men 
for  the  round  places,  the  strong  men  for  the  strong  tasks  and  the 
delicate  men  for  the  delicate  tasks.  We  have  got  to  evolve  a  process 
by  which  that  sort  of  assortment  will  take  place.  Always  heretofore 
in  armies  that  has  been  a  matter  of  chance,  it  has  been  a  matter 
of  individual  judgment  of  commanding  officers.  Even  when  com- 
manding officers  are  exercising  their  judgment,  humanly  speaking 
most  dispassionately,  it  is  quite  impossible  for  them  not  to  be 
aifected  by  elements  which  do  not  enter  into  the  accounting. 

If  one  were  to  select,  for  instance,  a  general  to  command  an 
expedition,  he  would  be  quite  likely  to  select  a  man  whom  he  liked 
as  a  man,  and  not  with  any  relation  whatever  to  his  capacity  to 
command  the  expedition.  And  this  is  true  generally,  so  that  some 
system  of  selection  of  talents  which  is  not  affected  by  immaterial 
principles  or  virtues,  no  matter  how  splendid,  something  more  scien- 
tific than  the  haphazard  choice  of  man,  something  more  systematic 
than  preference  or  first  impression,  is  necessary  to  be  devised.  When 


APPENDIX  681 


Dr.  Scott  presented  to  the  War  Department  the  question  of  calling 
in  psychology  in  this  work  we  all  realized  that  that  science  had  a 
particularly  unfortunate  name;  it  sounds  very  highfalutin'  and 
cloud-stepping  as  it  were.  It  is  the  skyscraper,  so  far  as  it  it» 
name  is  concerned,  of  modern  science,*and  there  is  a  certain  revul- 
sion in  the  ordinary  man's  mind  when  you  speak  to  him  about  a 
thing  that  sounds  as  pretentious  as  that.  -I -commend  to  my  good 
friend  Dr.  Scott  that  he  try  to  see  whether  they  can't  change  that 
term  to  the  study  of  human  action  or  something  with  a  popular  ap- 
peal. I  am  sure  that  the  impediment  would  be  so  much  less  if  that 
could  be  done.  But  when  you  come  down  to  it  the  psychology  which 
Dr.  Scott  has  applied  in  the  methods  of  the  Committee  on  Classifi- 
cation of  Personnel  in  the  Army  is  simply  applied  common  sense, 
and  those  of  us  who  are  familiar  with  the  work  of  this  Committee — 
with  the  thorough  interview,  the  trade  tests,  the  intelligence  ratings, 
the  use  of  Trade  Specifications,  the  Tables  of  Occupational  Needs — 
we  all  realize  that  we  have  in  this  scientiiic  procedure  an  un- 
rivaled and  effective  substitute  for  the  irrational  and  impulsive  per- 
sonal judgment  which  up  to  recent  times  had  obtained. 

Now  we  have  this  great  mass  of  men,' these  millions  of  our  fellow 
citizens,  each  one  of  them  filled  with  the  patriotic  desire  to  do  the 
things  which  he  can  do  best,  but  each  one  inhibited  from  finding  that 
place  by  reason  of  his  previous  inexperience  or  by  some  lack  of 
standard  of  comparison  between  himself  and  someone  else.  Com- 
manding officers  probably  have  no  natural  uniformity  of  judgment 
in  the  mere  matter  of  personal  judgment  of  men,  and  the  problem 
is  to  weld  those  millions  not  merely  into  an  army  which  will  fight-- 
any  American  army  will  fight,  we  have  discovered  that;  not  merely 
into  an  army  which  is  willing  to  die,  if  necessary,  in  order  to  main- 
tain its  position  and  uphold  its  traditions — we  have  discovered  now 
that  this  is  true  of  Americans  everywhere;  but  an  army  which 
will  fight  with  the  least  wastage,  the  most  effective  execution,  the 
most  intelligent  cooperation,  the  most  complete  because  the  most 
understanding  subordination,  and  that  sort  of  an  army  comes  only 
when  men  are  doing  the  things  for  which  they  are  by  nature  and 
training  best  adapted.  Now  that  is  a  very  high  task,  it  is  a  task 
of  contributing  the  finishing  touches  of  efficiency  to  tin's  great  Ameri- 
can army. 

I  have  myself  been  tremendously  stimulated,  not  only  by  the  care 
and  wisdom  employed  in  assigning  each  enlisted  man  but  also  by 
the  result  which  Dr.  Scott  and  his  associates  have  obtained  in  the 
officer  selecting  tests  which  they  have  devised.  The  Rating  Scale 
has  been  enthusiastically  received  by  the  Army,  but  I  am  told 


682  HISTORY  OF  PERSONNEL 

officers  have  occasionally  objected  to  answering  some  of  the  Binet 
test  questions  the  doctor  has  put  up  to  them;  I  have  been  rather 
afraid  to  take  a  Binet  test  myself,  but  when  you  finally  come  down 
to  it,  the  Rating  Scale  and  tests  for  mental  alertness  are  the 
application  of  a  perfectly  rational  method  to  the  great  problem  of 
putting  a  man  in  the  position  where  he  can  be  of  the  most  service 
to  the  country  and  to  the  common  cause.  Now  that  is  a  perfect 
parallel  to  the  story  about  the  boys  of  the  Y.  M.  C.  A.  I  told  you 
at  the  beginning;  they  have  a  new  set  of  virtues,  a  new  outlook  on 
life.  The  soldier  must  be  helped  and  guided  into  the  right  place  for 
the  best  use  of  his  talents.  And  that  is  the  task  which  is  set  before 
you  in  the  various  organizations  to  which  you  belong. 

It  is  a  wonderful  army  we  have  on  the  other  side.  We  are 
already  beginning  to  hear  what  we  expected  to  hear  about  it.  1 
am  not  speaking  now  about  its  movements  as  a  mass  of  men,  but 
we  are  beginning  to  hear  that  the  individuality  of  the  American 
soldier  is  attracting  attention,  that  the  individual  marksmanship  of 
the  American  soldier  is  telling  on  the  adversary.  I  have  seen  some 
confidential  reports  of  examinations  of  American  prisoners  made 
by  German  Intelligence  Officers,  and  intended  to  be  transmitted  to 
the  German  General  Headquarters  for  the  information  of  Hinden- 
berg  &  Company,  but  before  they  could  be  transmitted  they  were 
captured  with  their  authors.  Such  of  them  as  I  have  seen  have  com- 
mented on  two  or  three  things  about  the  American  soldier:  that  he 
is  more  of  an  individual  than  is  customary  among  soldiers;  that 
he  has  a  naive  confidence,  a  fundamental  moral  basis  for  his  par- 
ticipation in  this  war;  and  that  he  seems  to  be  quiet  and  undismayed 
even  when  alone  under  conditions  which  the  German  officers  say  are 
usually  regarded  as  too  severe  a  test  for  men  as  individuals.  So 
that  we  have  an  entirely  different  problem  from  that  of  the  German 
Government.  For  forty  years  it  has  been  making  all  Germans  very 
much  alike,  suppressing  individuality  except  in  particular  lines; 
men  have  been  permitted  to  be  as  individual  as  they  chose  about 
religion  and  about  chemistry,  but  not  about  themselves  or  their 
relations  to  one  another  or  about  the  State,  and  as  a  consequence  the 
raw  material  of  the  German  soldier  is  every  man  of  a  uniform 
type.  But  we  have  the  individual  American;  we  have  the  wide/ 
diversity  of  occupations  and  talents  which  America  produces.  'And 
we  have  to  discover  in  the  man  whose  occupation  up  to  now  has 
been  felling  trees  in  the  great  Northwest  the  mode  of  converting 
his  native  talents  and  native  virtues  into  military  talents  and  virtues. 
It  is  a  splendid  occupation,  a  very  necessary  undertaking,  and  your 
attendance  at  this  school  for  the  purpose  of  acquiring  the  rules  ano 


APPENDIX  683 


regulations,  attempting  to  systematize  this  process,  is  a  very  vital 
and  efficient  thing  for  the  American  Army. 

I  hope  that  you  will  remember  all  the  time  this  one  word  of 
caution  I  want  to  give  you  about  your  task.  We  deal  with  people, 
when  we  have  millions  of  them,  too  much  as  the  census  taker  does; 
we  deal  too  much  with  them  as  though  we  were  making  a  city 
directory  of  them.  I  went  out  to  Fort  Leavenworth  a  few  days 
ago,  and  while  I  was  at  the  Disciplinary  Barracks  I  wanted  to  see 
some  of  the  interesting  cases  of  personality  of  young  men  who  have 
been  drafted  in  the  Army  and,  carelessly,  have  fallen  afoul  of  the 
military  regulations.  I  wanted  to  get  their  statement  and  their 
attitude  towards  military  life,  and  after  I  had  been  at  it  for  perhaps 
an  hour  I  found  myself  asking  them  the  same  questions  in  the  same 
order.  I  asked  them  how  old  they  were,  whether  they  were  married, 
if  they  had  ever  been  in  love,  and  whether  their  girls  had  gone  back 
on  them,  but  before  very  long  it  was  obvious  to  me  that  it  was  be- 
coming mechanical.  Now  the  danger  that  we  have  in  this  Person- 
nel Division  is  that  with  the  size  of  the  task  and  the  frequency  of 
the  repetition  of  our  contact  with  individuals,  it  is  likely  to  make 
us  fail  to  remember  that  each  man  wilh  whom  we  deal  is  more  than 
a  card  in  the  index,  and  is  individually  a  man,  that  he  is  an  individual 
American  and  that  no  straight- jacket  set  of  questions  will  reach  his 
ultimate  possibilities. 

Now  if  we  can  approach  the  task  as  though  he  were  in  a  chemi- 
cal laboratory,  a  research  laboratory,  not  seeking  to  reproduce 
some  striking  experiments  which  other  chemists  have  taught  us  how 
to  do  by  putting  together  some  sort  of  ingredients  which  look  blue  and 
look  brown  when  mixed,  but  making  a  research  and  putting  together 
nncombined  elements,  trying  by  experiments  to  get  new  products, 
I  am  sure  that  the  work  will  be  even  more  useful  than  it  would 
otherwise  be.  I  am  not  a  lecturer  in  this  clasg;  I  have  no  right 
to  attempt  to  add  anything  to  the  very  full  and  wise  course  by 
Dr.  Scott.  My  presence  here  today  is  chiefly  to  give  an  expression 
of  complete  approval  to  this  really  great  innovation,  and  to  help 
the  innovation  in  the  formation  of  a  military  army. 


APPENDIX  III 

ADDRESS  BY  MAJOR-GENERAL  R.  HUTCHISON, 
C.B.,D.S.O..  DIRECTOR  OF  ORGANI- 
ZATION, BRITISH  ARMY 

BEFORE  PERSONNEL  OFFICERS'  SCHOOL,  CAMP  MEIGS, 
WASHINGTON,  D.  C.,  MAY  1,  1918 

General  and  Officers: 

We  "over  there"  have  been  at  war  for  some  three  and  one-half  and 
going  on  to  four  years,  and  during  that  time  we  have  gone  through 
many  changes  and  developments  of  our  military  system  and  machine. 
One  of  the  greatest  changes  we  have  made  is  in  the  way  we  are 
now  dealing  with  this  question  of  Personnel.  By  "Personnel"  we 
mean  all  the  main  officers,  under  officers,  non-commissioned  officers 
and  men  that  we  use  in  our  military  machine. 

At  the  beginning  of  the  war,  or  rather  during  1915,  when  Lord 
Kitchener  started  to  expand  our  all  too  small  regular  army,  he, 
without  knowledge  of  the  difficulties  of  personnel,  drew  into  the 
military  net  every  man  who  would  voluntarily  come  forward,  and, 
as  a  result,  we  had  skilled  mechanics  and  apprentices,  men  in  all 
forms  of  trade,  laborers,  university  graduates,  politicians — in  fact 
every  kind  of  man  serving  in  infantry  formations. 

They  made  very  good  infantry  soldiers,  but  this  plan  very  seriously 
interfered  with  the  output  of  many  vital  things.  In  addition  there 
soon  existed  a  shortage  of  skilled  trades,  so  that  our  various  engi- 
neer units  and  repair  units  were  soon  short  of  the  necessary  type 
of  men  to  fill  their  ranks. 

As  you  know,  our  shipbuilding  yards  gave  their  quota  of  men  to 
the  army,  the  result  being  that  the  output  of  ships  fell  down  very 
seriously  in  1916.  That  at  the  moment  did  not  concern  us,  because 
we  had  an  apparently  ample  supply  of  ships. 

The  same  took  place  in  our  coal  fields  and  collieries.  These 
colliery  men  came  forward  patriotically,  thereby  reducing  the  output 
of  coal  necessary  for  all  our  various  munition  and  other  factories. 

Fortunately  we  had  your  great  country  behind  us  in  the  produc- 
tion of  the  necessary  munitions  during  that  critical  period  when 
we  were  in  the  process  of  building  up  our  army.  You  came  for- 

684 


APPENDIX  685 


ward  nobly  and  provided  us  with  a  great  deal  of  what  we  wanted 
then.  However,  the  effects  of  this  policy  of  robbing  trades  fol- 
lowed right  through  our  building  program. 

In  1916,  when  we  found  it  necessary  to  introduce  conscription  into 
our  country,  and  had  to  compel  all  those  who  did  not  wish  to 
volunteer  to  corne  forward  and  do  their  share  for  their  country, 
the  same  unfortunate  mistakes  were  made.  Again  the  conscripts 
were  called  out  of  all  types  of  civil  employment  and  placed  in  our 
military  machine  without  an\  consideration  of  what  they  had  been 
doing  in  civil  life.  Towards  the  end  of  1916  we  began  to  suffer 
very  severely  indeed  from  the  eflerls  of  this  policy.  We  found 
that  we  were  unable  to  supply  the  number  of  men  required  for 
munition  factories,  for  the  shipbuilding  program,  and  for  the  neces- 
sary Royal  Engineer  units,  that  were  expanding  every  day  and  in  need 
of  necessary  men  to  turn  out  the  proper  amount  of  work  for  our 
heavy  batteries.  We  also  suffered  for  the  necessary  railway  engi- 
neers to  complete  new  engines  and  to  repair  the  ones  that  had  been 
worn  out,  and  so  on. 

I  could  talk  for  a  long  time  on  the  various  points  which  cropped 
up  at  that  time.  The  need  was  then  so  apparent  that  our  General 
Staff  stated  to  our  Adjutant  General  that  something  would  have 
to  be  done  to  get  us  out  of  the  unfortunate  mess  that  we  were  in. 
You  will  understand  what  great  difficulty  we  had  to  reorganize 
when  I  tell  you  we  over  there  were  fighting  for  our  lives  all  the 
time.  Consequently  many  in  authority  were  opposed  to  any  effort 
to  take  tradesmen  out  of  the  active  army  and  return  them  to  in- 
dustry at  home.  Naturally  if  you  want  to  pull  a  man  away  from  a 
fighting  organization,  it  is  charged  that  you  are  interfering  with 
such  and  such  a  General's  winning  this  or  that  battle;  and  it  became 
more  and  more  obvious  to  us  that  if  we  were  to  get  any  result  out 
of  reorganization  it  would  have  to  be  done  by  some  authority  who 
was  more  or  less  supreme. 

After  various — I  was  going  to  say  futile  attempts,  but  they  were 
not,  they  all  had  their  result  in  the  end — we  got  the  machine  work- 
ing. This  result  was  accomplished  through  the  agency  of  General 
Sir  William  Robertson,  our  Chief  of  Staff,  who  was  convinced  that 
such  a  reorganization  in  the  army  machine  was  necessary.  After 
two  or  three  months  in  the  initial  stages,  1  was  brought  in  and 
given  control  of  what  we  know  as  our  Department  of  Organization, 
with  the  title  of  "Director  of  Organization." 

The  first  difficulty  in  starting  this  reorganization  was  to  over- 
come "vested  interests."  We  had  in  our  army  a  great  number  of 
"vested  interests,"  and  I  found  that  any  attempt  to  arrne  at  what 


686 HISTORY  OF  PERSONNEL 

I  thought  was  necessary  was  met  repeatedly  in  this  direction  and 
in  that  direction  by — I  won't  say  direct  opposition — but  a  retard- 
ing influence  that  rendered  any  efforts  that  I  made  too  slow.  So 
I  had  to  go  to  the  Chief  of  Staff  .-.gain  and  say  that,  unless  I  be 
given  a  free  hand,  he  must  find  somebody  else  to  carry  out  the 
reorganization;  and  after  some  discussion  and  arrangement  I  was 
given,  as  far  as  possible,  a  free  hand  to  carry  out  this  reorganiza- 
tion work. 

From  that  point  my  job  was  fairly  easy.  The  chief  thing  was  to 
consider  every  interest  involved  and  work  in  as  closely  as  possible 
with  the  General  Staff,  and  with  the  various  general  officers  com- 
manding troops  in  the  field  and  at  home.  In  this  personnel  work 
you  have  really  to  set  about  educating  your  superior  officers,  and 
telling  them  the  reason  why  you  have  to  do  certain  things.  The 
difficulty  of  educating  those  officers  was  that  very  few  people  were 
in  a  position  to  educate,  and  it  was  only  after  you  began  training 
your  own  officers  and  training  the  machine  generally  that  they  in 
their  turn  were  able  to  train  others  and  distribute  the  knowledge 
that  they  had  acquired. 

I  take  it  that  you  here  are  assembled  to  be  instructed  and  learn 
personnel  and  organization  work  and  go  down  as  disciples  amongst 
the  army  and  distribute  what  you  learn  and  deal  with  your  own 
people.  In  addition  to  the  hard  and  fast  type  of  orders  which, 
after  all,  have  got  to  be  carried  out,  you  will  find  the  machine 
improves  out  of  all  knowledge  if  you  can  carry  your  officers  with 
you,  that  is,  if  they  realize  that  what  they  are  ordered  to  do  is  for 
the  good  of  the  -whole  army. 

Now,  I  would  just  like  to  point  out  to  you,  before  I  go  any  further, 
one  or  two  of  the  effects  of  our  unfortunate  action  in  the  army  in 
neglecting  proper  selection  and  placing  of  men  in  the  early  stages 
of  the  war,  which  we  have  had  to  correct  since. 

After  enlisting  and  training  and  equipping  and  sending  out  to 
the  field  fine  types  of  man,  "man  power,"  we  found  it  necessary 
to  draw  from  our  army  back  to  civil  life  some  thirty  or  forty  thousand 
shipbuilders.  Now  those  men  were  all  fit  and  good  soldiers,  and 
you  can  imagine  the  effect  on  the  various  divisional  and  corps  com- 
manders when  they  found  those  excellent  men  having  to  be  drawn 
out  of  the  army  and  put  back  into  plain  clothes  to  work  in  the 
shipyards. 

We  had  to  do  exactly  the  same  thing  with  our  agricultural  experts, 
that  is,  people  who  had  been  accustomed  to  plow  the  land  and  work 
tractors  and  things  like  that,  because,  you  know,  we  were  in  danger 
of  going  without  food;  and  we  had  to  develop  all  the  available  land 


APPENDIX  687 


we  could  and  put  it  under  corn.  To  do  that  we  had  to  draw  from 
the  army  a  great  number  of  men,  I  think  something  like  seventy 
thousand,  from  the  army  and  put  them  into  agriculture. 

Well,  that  derangement  and  breaking  up  of  the  machine  might 
have  been  avoided,  and  I  hope  and  trust  that  your  personnel  branch 
will  be  able  to  avoid  the  various  pitfalls  and  morasses  we  fell  into 
on  the  wayside. 

It  is  difficult  in  dealing  with  the  subjects  for  which  I  have  such 
an  enthusiasm  to  limit  my  remarks  to  a  reasonable  time,  and  if  you 
find  me  getting  beyond  your  endurance  I  hope  you  will  tell  me. 

The  great  difficulty  that  we  experienced  in  dealing  with  the  reor- 
ganization which  we  commenced  in  1916  was  to  convince  our  superior 
officers — and  when  I  say  "our  superior  officers"  I  mean  the  various 
officers  who  commanded  the  various  corps  of  the  armies — when  such 
a  reorganization  was  necessary.  This  was  only  done  by  writing  very 
carefully  worded  letters,  explaining  the  great  shortage  in  the  various 
types  of  trades,  and  asking  them  to  co-operate  with  us  and  let  us 
know  what  members  of  the  various  trades  they  had  employed  in 
their  various  formations.  In  infantry  battalions,  for  instance,  army 
service  corps  units — by  army  service  corps  units  we  mean  what 
you  call  quartermaster  units — in  our  medical  units — we  wanted  many 
tradesmen  returned  to  us  for  transfer  to  other  arms  or  industry, 
and  we  asked:  "How  many  mechanics  have  you  got?  How  many 
skilled  engineers?  How  many  shipbuilders?*'  How  many  of  a  thou- 
sand and  one  trades?  We  found  that  on  the  whole  we  got  very  good 
results  from  that 

Hut  our  machine  was  not  perfect,  and  we  found  by  the  time  we 
issued  orders  for  certain  men  to  be  transferred  from  the  thirty-fifth 
infantry  battalion,  let  us  say,  that  those  men  had  gone  overseas  or 
gone  somewhere  else,  and  so  it  became  a  sort  of  hunt  all  through 
the  army  to  find  out  where  these  men  had  gone;  and  that  led  us 
to  the  conclusion  that  it  was  undesirable  to  trust  too  much  to  the 
various  commanders  of  units  for  this  information,  and  that  we  must 
have  that  information  in  an  independent  way. 

You  will  see  when  a  battalion  commander  is  judged,  whether  rightly 
or  wrongly,  by  the  results  that  are  produced  by  his  command, 
whether  he  has  got  a  good  battalion  or  a  bad  battalion,  and  whether 
the  men  do  their  work  well  or  not,  he  is  very  much  opposed  to  giving 
up  what  he  calls  his  good  men,  whether  they  are  wanted  for  the 
good  of  the  nation  or  for  anything  else.  He  considers  that  his  bat- 
talion is  of  first  importance  in  his  mind,  and  therefore  we  found  it 
very  difficult  to  get  a  correct  return  from  those  commanding  officers, 


HISTORY  OF  PERSONNEL 


from  divisional  generals  and  other  people  who  kept  on  hiding 
people ! 

We  found  mosl  curious  things  going  on.  We  found  orderlies 
who  were  very  skilled  mechanical  engineers,  very  nice  men,  delight- 
ful manners,  always  working  efficiently,  and  the  battalion  commander 
did  not  want  to  lose  them.  He  kept  them,  and  did  not  realize  or 
refused  to  realize  the  situation,  saying,  'Well,  the  one  or  two  men 
did  not  matter  so  long  as  I  gave  up  the  others."  This  went  on 
through  the  army,  and  so  we  found  it  necessary  to  start  our  great 
index  system. 

I  understand  that  you  have  got  this  index  system  now  in  your 
army,  and  that  you  have  avoided  all  our  earlier  difiiculties.  This 
great  index  system  is  practically  your  system.  The  man  is  recorded 
on  a  card  where  he  is,  that  is,  where  he  is  in  the  army,  what  his 
profession  was  before  he  came  into  the  army,  whom  he  was  employed 
by,  the  last  two  employers,  and  his  home,  that  is,  where  he  lived.  In 
our  card  index,  which  is  in  London  and  is  kept  up  to  date,  whenever 
a  man  went  from  one  unit  to  another  his  card  was  moved  cor- 
respondingly to  indicate  where  he  went.  For  instance,  he  went  from 
Newcastle  to  London,  or  from  London  to  Bristol — his  movements  were 
recorded  in  the  large  card  index  system  for  the  whole  army  at  home. 
In  that  way  we  found  out  where  our  various  skilled  tradesmen  were, 
and  in  that  way  we  have  been  slowly  able  to  move  them  about, 
gathering  them  up  and  putting  them  into  their  proper  places,  taking 
skilled  carpenters  and  putting  them  in  the  airplane  units;  taking 
skilled  tinkers  from  the  cavalry  and  the  infantry  and  putting  them 
in  the  artillery  units,  and  so  on.  As  soon  as  the  man  goes  overseas, 
his  card  is  marked  "overseas,"  and  we  take  care  that  a  skilled  man 
goes  to  a  suitable  unit  in  France. 

This  card  index  system  gives  us  two  things:  it  gives  us  a  line  as 
to  where  we  have  got  men  misemployed,  whether  employed  in  units 
that  ought  not  to  have  that  type  of  man  power,  and  it  also  gives 
us  a  check  on  the  numbers  of  men,  the  total  number  of  men  we  have 
got  in  the  country. 

Now,  when  I  came  in  to  our  directorate  of  organization  in  London 
I  found  that  nobody  knew  the  number  of  men  we  had  at  home,  so 
that  we  were  hundreds  of  thousands  out.  I  do  not  mean  to  say  we 
had  lost  one  hundred  or  two  hundred  thousand  men,  but  there  was 
no  one  in  authority  to  give  me  a  return  that  told  me  the  number  of 
men  we  had  in  the  land  within  that  figure.  You  say  it  is  an 
astonishing  thing  that  in  a  small  country  like  the  United  Kingdom 
you  did  not  know  within  two  hundred  thousand  what  you  had.  But 
the  fact  remains  that  this  was  the  case,  for  unmilitary  people  were 


APPENDIX  689 


dealing  with  all  types  of  returns.  We  found  that  some  units  did  not 
return  anything  at  all.  When  I  say  they  were  asked  by  orders  to 
return  certain  papers,  and  they  filled  out  a  paper  and  stated  the 
number  of  men  and  officers  they  had  and  sent  it  into  our  war  office, 
that  was  quite  simple.  Some  officers  thought:  "We  will  get  criticism 
from  these  things,"  and  they  did  not  send  them  in  at  all !  And 
the  result  was  like  a  return  for  income  tax, — as  long  as  you  don't 
send  any  return  nobody  bothers !  Well,  this  went  on.  We  then  started 
and  collected  from  various  units  the  different  returns.  By  returns, 
you  understand,  we  mean  a  report  stating  what  you've  got,  num- 
bers of  men,  arms,  munitions,  anything  in  the  form  of  a  return. 

I  found  that  units  were  issuing  or  returning  some  thirty  or  forty 
returns  per  week  to  all  sorts  of  different  authorities.  The  quarter- 
masters wanted  a  return  of  this  and  that;  the  Adjutant  General 
wanted  several  returns;  the  district  commander  in  which  the  unit 
happened  to  be  stationed  also  wanted  similar  returns.  The  brigade 
commander  said,  "Oh,  yes;  we  are  having  these;  we  will  have  some- 
thing else,"  and  they  had  returns;  and  so  it  mounted  up  like  a  snow- 
ball— a  mania  for  returns.  If  a  staff  officer  was  suddenly  ordered 
by  his  General  to  report  "how  many  men  under  seventeen  or  eighteen 
have  you  got  in  the  brigade  or  in  the  division?"  he  said  "I  don't 
know."  "Well,"  the  General  would  reply,  "it  is  your  business  to 
know."  Immediately  he  said,  "Well,  order  a  return."  Well,  that 
is  quite  all  right;  "order  the  return,"  but  it  was  never  stopped  and 
went  on  repeating  itself  every  week,  and  so  these  returns  mounted  up. 

Well,  to  make  a  long  story  short,  we  had  a  meeting  of  the  various 
commanding  officers,  Adjutants,  Staff  Officers,  and  representatives 
of  the  General  Staff,  the  Quartermaster's  Staff,  the  ordnance  people, 
Adjutant  General  people,  and  then  said:  "Now  look  here,  what  re- 
turn do  you  want?"  and  then  we  made  what  we  call  a.  "consolidated 
return,"  and  this  return  was  made  as  far  as  possible  to  give  all 
the  information  that  was  required  by  the  various  branches  and 
departments,  and  also  at  the  same  time  to  satisfy  the  requirements 
of  the  local  district  commander.  The  return  was  made  up,  giving  the 
body  of  it  to  an  Adjutant  General's  return — that  is,  it  came  to  me, 
the  Director  of  Organization — they  all  came  in  to  me,  giving  the 
number  of  officers  and  men  that  they  had,  whether  the  men  were 
fully  trained  or  whether  partly  trained,  whether  fit  for  service  or 
unfit,  whether  doing  special  courses,  and  so  forth,  and  the  number 
of  officers  that  were  fit  and  the  ones  unfit.  On  the  edges  of  it  there 
are  various  returns  showing  the  number  of  serviceable  rifles  the 
unit  has  in  its  possession,  and  the  amount  of  small  ammunition. 
Down  another  side  probably  the  number  of  cars  and  vehicles  and 


690 HISTORY  OF  PERSONNEL 

horses  they  have  in  their  possession  may  be  shown.  On  another  side 
some  other  form  of  return. 

These  pieces  on  the  sides  are  perforated,  and  when  they  reach 
my  office,  where  all  these  returns  are  received,  I  tear  off  one  par- 
ticular portion  and  send  it  to  the  Quartermaster  General,  and 
another  slip  and  send  it  to  the  Genral  Staff,  and  another  slip  and 
send  it  to  the  Ordnance,  and  they  get  their  slip  containing  their 
portion  of  the  return  and  file  it,  and  I  have  my  bit  left,  from  which 
I  compile  a  complete  return,  a  book  about  three-quarters  of  an  inch 
thick,  a  book  which  gives  every  unit  we  have  got  in  the  United 
Kingdom,  showing  the  number  of  officers,  men,  etc.  As  a  matter  of 
fact,  a  consolidation  of  these  weekly  returns.  After  about  two 
months'  working  at  this  book  I  succeeded  in  getting  an  accurate 
return  of  the  men  in  the  United  Kingdom;  and  it  is  astonishing 
how  very  accurate  that  book  became,  because  of  these  returns  being 
made  over  the  commanding  officers'  signatures.  And  we  had  one  or 
two  inspectors  who  went  around  and  said:  "Where  is  your  return  for 
week  before  last?"  and  they  said:  "Here  is  our  return  for  week  before 
last."  "How  many  men  have  you  got?"  and  they  checked  it,  and 
said  "All  right.  Let's  have  a  look  at  these  men."  You  have  machine 
gunners  under  training  and  you  check  up  thoroughly,  and  if  the 
commanding  officer  is  found  to  be  issuing  a  return  without  check- 
ing up  properly,  that  is,  using  his  signature  simply  to  cover  mis- 
statements,  he  is  dealt  with  accordingly,  and  in  a  short  time  we  find 
returns  are  very  accurate. 

Now,  the  commanding  officers  mean  well,  and  they  mean  to  give 
you  a  correct  return,  but  they  have  to  catch  a  train  or  get  to  some 
other  barracks,  and  the  return  is  prepared  by  some  sergeant  or 
under  officer,  or  someone  else,  and  he  is  not  very  accurate,  and  the 
General  keeps  on  finding  things  that  are  not  accurate.  You  will 
have  to  deal  with  this  also,  and  it  is  your  business  to  see  that  the 
number  of  men  you  have  in  the  country  is  reported  correctly,  where 
they  are,  where  they  live,  what  they  are  doing;  otherwise  you  will 
find  that  large  numbers  of  men  will  live  in  your  country  on  Govern- 
ment pay,  wear  a  uniform  and  not  do  one  bit  towards  winning  the 
war. 

I  do  not  know  why  it  is;  I  don't  know  where  they  go,  but  we  found 
that  thousands  and  thousands  of  men  got  hidden  in  the  country; 
they  got  on  the  railways;  they  got  into  offices,  they  got  into  all  sorts 
of  things.  You  won't  believe  the  occupations  they  get  into,  but  they 
will  go  into  them.  They  will  drive  tram  cars.  They  will  do  all 
sorts  of  things  unless  you  get  a  return  on  them  and  get  your  hand 
on  them  and  use  them  to  the  best  interest. 


APPENDIX  691 


Now,  I  have  rather  been  talking  in  a  general  sense  of  my  direc- 
torate, and  I  would  rather  like  now  to  get  down  to  the  more  impor- 
tant part  of  my  work  on  the  other  side,  which  concerns  you;  that 
is,  what  we  had  to  do  and  what  we  do  now  in  the  grading  and  the 
directing  of  personnel  into  their  proper  channels. 

Before  doing  so,  I  would  just  like  to  say  this,  that  if  you  are  going 
to  direct,  and  if  you  are  going  to  guide,  it  has  got  to  be  done  by  one 
man  and  one  authority.  You  cannot  have  more  than  one  man  direct- 
ing and  showing,  and  his  various  subdirectors  and  individuals  that 
he  employs  throughout  the  country  must  be  under  his  control.  That 
being  so,  if  you  go  into  a  game  like  this,  and  one  of  you  is  concerned 
in  looking  after  personnel,  you  must  be  directly  under  one  authority 
and  under  nobody  else.  Otherwise  you  will  get  driven  off  your  path 
by  other  interests,  and  as  far  as  I  see  of  your  machine  here  from 
the  top  downwards,  it's  one  of  the  lines  where  you  will  have  to 
strike  out  for  yourselves  and  insist  on  recognition  of  the  personnel 
branch  as  the  most  important  branch  in  the  army,  as  it  really  is. 

You  cannot  fight  without  men  and  you  can't  fight  well  unless  the 
men  are  properly  Used,  and  no  matter  whether  a  General  is  a  good 
tactician  or  a  good  strategist,  he  will  do  no  good  unless  he  gets 
the  right  type  of  men  as  soldiers,  and  the  right  type  of  men  in  the 
various  organizations  that  he  is  going  to  fight  with;  and  it  does  not 
matter  whether  the  General  has  got  ammunition  or  tanks  or  guna 
or  anything  else,  he  can  do  no  good  without  the  men,  and  the  right 
kind  of  men;  and  it  really  depends  on  the  personnel  branch  of 
any  country  whether  a  country  is  going  to  be  successful  in  war  or 
unsuccessful. 

It's  a  long,  long  way  the  most  important  thing  we  have  in  our 
country.  So  much  so  that  it  is  on  the  correct  use  of  our  man  power, 
both  in  the  army  and  in  civil  ranks  that  success  depends,  because, 
after  all,  to  get  the  results  from  a  country  you  have  got  to  use 
men  where  they  are  most  useful.  If  the  country  decides  to  build 
more  ships  or  to  do  this  and  that,  they  have  got  to  get  men  to  do 
it  with,  and  on  the  correct  allocation  of  personnel  among  the  various 
branches  of  the  army  and  in  civil  life  depends  the  effort  that  a 
country  is  going  to  put  into  a  great  venture  like  this. 

Now,  in  order  to  visualize  to  you  what  our  methods  are,  to  vis- 
ualize just  how  we  get  hold  of  a  group  of  men  who  are  working 
in  civil  life  in  the  United  Kingdom  and  handle  them  until  they  ulti- 
mately go  overseas  to  take  a  part  in  the  war,  I  will  trace  what 
happens  when  we  call  up,  or  as  you  say  draft,  men.  The  actual 
method  of  calling  out  the  men  from  civil  rank  does  not  concern 
you.  They  go  as  you  do  after  getting  notification.  They  are  ex- 


692  HISTORY  OF  PERSONNEL    

ainined  by  doctors.  If  they  feel  that  they  have  got  a  just  right, 
they  probably  protest  and  say,  "Well,  we  ought  not  to  be  taken  for 
another  three  months."  Their  case  is  decided  by  a  tribunal,  but 
after  all  that  is  decided  they  get  their  final  calling  out  notice.  They 
then  report  to  a  "posting  center."  At  that  posting  center  they 
arrive  in  plain  clothes  and  go  through  the  door  or  the  gate  of  the 
depot.  They  then  come  under  my  control.  We  put  them  into  uni- 
form if  we  accept  them.  In  certain  cases  we  think  the  man  is  un- 
suitable for  any  employment  whatsoever  in  the  army.  We  then  reject 
him,  and  he  goes  back  to  civil  life.  But  if  we  accept  him,  and  we 
accept  the  most  of  them,  he  goes  into  uniform;  he  is  then  interviewed 
by  a  personnel  officer.  The  personnel  officer  is  part  of  the  posting 
establishment,  and  he  decides  in  his  own  mind  from  what  the  man 
looks  like  physically,  and  what  his  occupation  has  been  in  civil  life, 
into  what  branch  of  the  service  he  is  going  to  place  this  man. 

We  will  take  an  example:  A  man  has  been  doing,  we  will  say, 
what  corresponds  to  your  cowboy  work,  punching  cattle,  and  our 
officer  decides  that  he  will  do  well  in  the  cavalry,  as  a  cavalry  soldier, 
and  he  sends  him  along  to  the  cavalry  service.  Another  man  comes 
along,  and  the  officer  finds  that  he  has  been  a  watchmaker,  and  says, 
"Now,  what  on  earth  wih1  I  do  with  this  fellow?  We  don't  make 
watches  in  the  army,  but  what  will  I  do  with  him?"  He  looks  up 
the  army  need  and  says,  "Well,  he  ought  to  make  a  good  instrument 
repairer,  or  he  may  make  us  a  good  man  in  dealing  with  telephone 
work,  or  a  man  who  has  been  working  in  very  fine  work  like  that 
might  become  valuable  in  the  Royal  Engineer  work."  So  he  says, 
"Very  well,  the  most  I  can  do  now  from  what  I  see  here  is  to  send 
him  to  a  unit  for  training,"  so  he  sends  him  to  a  Royal  Engineer 
unit,  and  there  he  goes;  but  it's  here  that  what  you  call  "sifting 
out"  of  the  skilled  men  from  the  unskilled  takes  place.  In  these 
training  units  where  the  man  undergoes  his  preliminary  training, 
varying  from  fourteen  weeks  up  to  four  or  even  five  months  in  the 
case  of  very  skilled  trades,  this  man  is  trained  for  his  occupation. 

As  soon  as  he  is  fully  trained,  he  is  either  drafted  overseas  as  a 
reinforcement — that  is,  what  you  call  a  "replacement  man" — or  he 
is  sent  to  a  new  unit  at  home  preparing  to  go  abroad.  As  far  as 
possible  we  avoid  sending  any  man  to  a  new  unit,  that  is,  to  a  divi- 
sion that  is  going  overseas,  or  a  battalion  going  overseas,  until  he  is 
a  "trained  man"  individually,  and  the  reason  is  that,  when  he  goes 
to  a  unit,  such  a  battalion  or  a  battery,  or  a  cavalry  squadron  per- 
haps, he  is  then  used  as  part  of  that  organization  and  they  do  not 
have  to  spend  a  vast  amount  of  time  giving  individual  instruction. 

You  get  a  collection  of  trained  men,  and  you  use  them  as  a  unit. 


APPENDIX  693 


It  is  then  the  business  of  the  officer  commanding  that  unit  to  train 
it  as  a  unit.  And  so  you  go  on  to  the  formation  or  collection  of 
battalions,  which  is  a  regiment,  and  a  collection  of  regiments  into 
a  brigade,  and  a  collection  of  brigades  into  a  division,  in  all  of  which 
collective  or  group  training  is  necessary.  You  cannot  at  the  same 
time  teacli  him  his  trade  and  train  him  to  be  part  of  a  division  or 
a  battalion.  That  is  our  reason  for  having  training  centers. 

To  hark  back  for  a  moment  to  the  man  that  comes  to  one  of 
these  training  centers.  You  will  find  there  that  the  man  either  is 
not  what  he  said  he  was,  or  he  is  something  else,  or  he  has  more 
skill,  and  it's  there  during  his  training  period,  if  the  man  is  wrongly 
placed,  that  we  drop  him  out. 

You  get  men  who  want  to  go  to  army  service  corps  units  to  drive 
a  motor  truck  or  car,  and  you  will  find  all  sorts  of  people  who  like 
that  sort  of  work,  and  you  will  find  that  by  trade  that  man  is  some 
form  of  skilled  man  you  want  very  badly.  For  instance,  the  other 
day  I  had  to  find  within  the  army  certain  what  we  call  "dental 
mechanics" — a  man  that  makes  a  plate  for  false  teeth — for  a  lot 
of  our  men  we  are  calling  out  now  have  bad  teeth,  and  in  order  to 
eat  the  rather  hard  food  in  the  trenches  they  must  have  their  teeth 
repaired,  and  in  order  to  repair  their  teeth  we  have  to  have  dental 
mechanics.  We  had  to  search  the  army  for  dental  mechanics,  and 
we  found  most  of  them  in  the  army  service  corps  driving  cars. 
We  asked  them  why,  and  they  said  "they  preferred  to  do  that 
work,"  so  we  had  to  shift  them  to  their  proper  place. 

During  the  training  period  we  often  have  to  sift  men  into  more 
useful  occupations,  and  here  it  is  that  we  have  got  to  use  what  we 
call  our  "trade  testing."  It  does  not  always  follow  that  if  a  man 
says  he  is  a  skilled  fitter  that  he  is  a  skilled  fitter,  and,  in  order  to 
verify  what  a  man  says,  we  have  to  send  men  to  a  trade  center 
where  the  self-styled  "skilled  fitter"  is  put  at  a  bench,  and  by  look- 
ing at  his  work  a  skilled  instructor  and  practical  man  can  very 
quickly  mark  him  a  "skilled  fitter,"  when  he  goes  straight  back  to 
his  occupation.  If  he  fails  he  may  be  "tested"  for  some  other  trade. 

The  most  difficult  thing  we  have  to  deal  with  in  Trade  Testing  has 
been  the  classification  of  a  man  within  a  -trade.  Now,  in  civil  life 
you  get  men,  we  will  say,  with  ten  classifications  in  a  particular  trade. 
You  get  them  not  according  to  their  money  value,  but  according 
to  what  they  can  do.  In  the  army  it  is  not  a  business  occupation  and 
you  cannot  classify  to  that  fine  degree,  but  what  you  can  do  is  this: 
You  can  classify  the  man  as  an  expert  at  his  trade  or  as  what  we 
call  semi-expert,  skilled  or  semi-skilled,  and  in  that  way  you  can 
use  a  man  as  a  skilled  man  straightaway,  or  if  semi-skilled  you 


694 HISTORY  OF  PERSONNEL 

can  send  him  to  various  workshops  to  get  more  training.  He  then 
becomes  good  enough  to  take  his  place  as  a  skilled  workman  in  a 
particular  army  unit,  and  it  is  this  question  of  grading  which  :s 
concerning  us  very  much  just  now  at  home. 

Here  in  your  case,  I  take  it,  you  will  not  be  so  critical  for  tlie 
moment,  as  you  have  a  great  many  skilled  workmen  of  all  sorts  in 
this  country,  and  it  is  only  a  question  of  whether  you  can  distribute 
the  several  occupations  and  take  those  men  for  your  army.  We 
have  had  to  deal  with  all  kinds  and  types  of  men  that  we  could  pos- 
sibly put  into  a  trade.  For  instance,  now,  we  have  been  very  short 
of  blacksmiths,  and  we  have  had  to  take,  skilled  farriers,  that  is, 
men  who  make  shoes  for  horses — farriers-^and  train  them  to  be 
blacksmiths,  and  they  make  very  good  blacksmiths,  most  of  them. 
In  that  way  you  get  allied  tradesmen  going  on  helping  you  out  in 
a  place  where  you  have  no  men.  If  you  go  on  long  enough  in  this 
war  you  will  have  to  do  it,  and  it  is  just  as  well  to  have  your  machine 
so  arranged  that  you  can  deal  with  such  a  situation. 

The  man  that  we  cut  out  from  our  trade  test,  or  fail  to  pass,  is 
reported  as  no  good  in  that  particular  trade.  He  then  goes  back 
to  infantry  or  cavalry,  as  the  case  may  be,  or  where  an  unskilled 
man  is  required. 

There  is  just  one  other  point:  Your  personnel  officers  who  work 
in  the  various  camps  and  divisions  and  other  formations  will  have 
many  difficulties  similar  to  ours.  You  will  find  a  few  unsympathetic 
Generals,  unsympathetic  officers,  who  think  you  are  a  nuisance. 
You  have  got  to  be  tactful  and  carry  them  with  you,  and  I  have  found 
that  the  best  way  to  deal  with  them  is  to  make  it  to  their  interest 
to  arrange  a  suitable  personnel  and  shift  it  about  from  one  for- 
mation to  another  so  they  can  see  the  advantages  coming  to  others 
through  a  careful  placing  of  men. 

A  good  way  to  get  a  sympathetic  hearing  for  personnel  work  is  to 
get  your  Director  to  have  the  General  Staff  to  give  a  helping  hand, 
to  say  that  it's  to  the  interest  of  the  army  that  these  things  should 
be  done,  and  that  the  personnel  officers  should  be  encouraged  to 
look  about  and  search  for  the  different  types  of  tradesmen  which 
you  want  in  the  army;  ^and  when  any  General  Staff  officer  goes 
down  to  a  division  or  a  camp  he  ought  to  be  instructed  by  the 
Chief  of  the  Staff  or  somebody  under  him  to  always  mention  that 
point  of  Personnel,  and  say,  "the  Chief  of  the  Staff  attaches  great 
importance  to  this  question  of  personnel  and  the  correct  placing  of 
this  personnel,  and  he  will  hold  you  responsible.  It  is  in  his  interest 
and  in  the  interest  of  the  army  that  this  proper  grading  of  per- 
sonnel be  carried  out  by  you."  If  an  officer  has  done  particularly 


APPENDIX  695 


good  work  in  a  camp  or  a  division  I  think  it  is  up  to  you,  the 
Director  and  your  people,  to  bring  his  name  to  the  notice  of  the 
General  Staff,  and  say  "this  officer  has  been  most  helpful  in  placing 
the  personnel  where  it  is  required."  A  pat  on  the  back  from  the 
General  Staff  to  whoever  has  been  thus  helpful  is  most  encouraging, 
and  this  officer  becomes  known  throughout  the  army,  and  other 
people  desire  to  do  likewise. 

It's  the  only  way.  When  it  becomes  known  throughout  the  army 
that  the  General  Staff  considers  it  is  important  and  it  is  recognized 
as  good  work  if  a  man  works  in  that  direction,  even  though  it  is 
against  the  interests  of  his  own  command,  from  the  point  of  view 
of  the  efficiency  of  his  command,  then  I  think  you  will  get  good 
results.  You  must  educate  the  army  people  who  do  not  realize  the 
needs  of  modern  warfare  and  tell  them  that  this  is  the  right  thing 
to  be  done  for  the  army;  they  may  not  believe  you  and  won't  carry 
it  out  unless  helped  along  by  their  own  superiors. 

It  is  very  desirable  in  dealing  with  this  question  of  personnel  not 
only  to  think  alike  amongst  yourselves,  but  also  to  keep  very  close 
touch  through  your  supervisors  with  the  General  Staff. 

Now,  the  General  Staff  organization  really  is  the  controlling  bodv 
of  the  army,  that  is,  it  controls  the  kind  of  army  you  are  going  to 
have,  where  you  are  going  to  employ  it,  how  you  are  going  to  em- 
ploy it,  and  a  hundred  and  one  other  things,  and  therefore  you 
have  to  work  very  closely  with  the  General  Staff.  It  is  of  the 
greatest  importance,  once  you  have  arrived  at  a  decision  as  to  how 
a  particular  thing  is  to  be  done,  that  is,  how  the  men  are  to  be 
placed  in  their  proper  places,  how  the  men  are  to  be  moved  from 
one  organization  to  another,  then  to  accept  the  plans  until  snoie- 
thing  better  has  been  developed,  and  all  preach  the  same  gospel  and 
not  say,  "Oh,  I  could  do  it  better  than  that,  I  would  do  it  this  way," 
or  again,  "I  should  do  it  that  way."  Preach  the  same  gospel,  and 
say:  "This  is  the  way  it  ought  to  be  done  until  something  better  has 
been  devised."  If  you  think  you  know  a  better  way,  bring  it  to  the 
notice  of  your  Director.  If  there  is  anything  of  value  in  your  sug- 
gestion I  have  no  doubt  it  will  receive  every  consideration,  but  until 
there  has  been  some  change  in  the  system  back  the  system  you 
have. 

We  have  had  great  difficulty  in  our  army  through  our  officers  who 
have  not  what  you  call  "military  discipline,"  but  always  think  they 
can  go  one  better,  and  they  suggest  other  methods.  Well,  that  leads 
to  doubt  in  the  minds  of  the  people  you  are  trying  to  work  with 
that  is,  your  various  generals  and  camp  commanders,  and  the  like  of 
that.  If  you  all  preach  the  same  gospel  you  will  find  that  Mr. 


696  HISTORY  OF  PERSONNEL 

Jones  tells  them  this,  and  Captain  Smith  tells  them  the  same  thing, 
and  Captain  So  and  So  tells  them  the  same  thing,  and  the  Chief  of 
the  General  Staff  tells  them  the  same  thing,  and  finally  they  think 
that  is  the  right  thing  to  do,  and  they  do  it.  But  if  one  tells  them 
one  thing  and  another  another  tiling,  they  are  in  doubt  and  nothing 
is  done.  So  this  unity  of  purpose  is  very,  very  important. 

I  cannot  impress  on  you  too  much  the  very  great  importance  of 
this  personnel  problem,  and  you  will  find  as  you  go  on  in  this  war 
that  it.  will  become,  if  not  the  dominating  factor  in  your  arihy,  cer- 
tainly one  of  the  most  dominating  factors  that  you  have  got  to  meet 
and  deal  with.  I  can  only  wish  you  every  success  in  your  efforts  to 
make  an  army  of  the  right  kind  of  men,  and  have  them  employed  in 
the  right  places,  because  it's  the  thing  we  have  suffered  from  and  are 
suffering>  from  now,  and  we  can't  help  it,  simply  because  we  did  not 
have  a  working  Personnel  Organization  at  the  beginning  of  our 
efforts. 


INDEX 


NOTE — Abbreviations    used:    CCP,    for    Committee    on    Classification    of 

Personnel    in    the    Army ;    EST,    for    Committee    on    Education    and 

Special    Training;    SATC,    for    Students'    Army    Training   Corps; 

PMGO,  for  Provost  Marshal  General's  Office ;  AGO,  for 

Adjutant  General's  Office 


Abel,  Maj.  Chas.  A.,  109,  485 
Achilles,  Mr.  Paul  S.,  44 
Address 

by  Major  General  R.   Hutchison, 

684  696    . 

by  Secretary  of  War.  678-683 
Adjutant   General's  Office, 

CCP,  under  jurisdiction  of,  56 
consolidation     of     draft     paper- 
work by,   586 
forms  of,   (See  Forms) 
muster   rolls   abandoned   by,   585 
officers'    qualification    card     files 

of,  591 

paper-work,    study   by,   583-596 
reports  of  changes  instituted  by, 

585 
service   record    changes   by,    590- 

591 

special   reports  to,  592 
statistical   section  of,  587-590 
war  service  exchange  of,  586-587 
Aids  for  interviewers, 
illustration  of,   352 
issue  of,  371 

TT-1,  78,  156,  353 

TT-2,  351 

Air  Division  of  Signal  Corps,  57-58 

Air   Service — Military   Aeronautics 

classification  for  officers  of,  630- 

631 
intelligence     test — enlisted     men 

in,   628-630 

mental  alertness  test  of,  614-617 
personnel  for,  in  peace,  631 
personnel   problems  of,   476,   477 
personnel   specifications  of,    190 
qualities  for  aviator  In,  620-628 
qualities  for  flying  In,  617-620 
qualities  for  ground    schools    of, 

608-613 


selection    of   officers   for,    604-608 
services    rendered    the,    by    CCP, 

632-633 

Allen,  Capt.  E.  H.,  76 
Altemose,  Capt.  C.  B.,  74 
Allotment  machinery,  529-531 
Allotment  sheet,  402 
Allotment,  sub-section  of  CCP,  108. 

109,  112 

Alton,   Maj.   R.   M..   487 
American   Expeditionary   Forces, 
occupational    statistics    of,    212- 

216 

personnel  work  in,  82,  83,  92 
qualification   cdrd  in,   553 
rating  of  officers  in,  569,  570 
American  Federation  of  Labor,  349 
American      Psychological      Associa- 
tion, 54 
Angell,   Dr.    James  R.,   57,   59,   79, 

218,  533,  543,  596 
Anthony,   Mrs.   Gladys  G.,  110 
Applicants'  qualification  card,   152, 

636 

Applied  psychology,   41-43 
Army      needs      (See      occupational 
needs ;      occupational      special- 
ists :    personnel    specifications) 
Army  paper- work        (See        paper- 
work) 

Army    schooling,    200 
Army   training. 

necessary  to  unit,  200 
pre-enlistment.  128 
pre-servlce.   128 
post-enlistment.  128 
school  certificates  of,   127 
Army     trade     specifications      (See 

trade  specifications) 
Army  trade  tests  (See  trade  tests* 
Army  unit, 

balancing  of  skill  and  grades  in, 
198,  199 


697 


698 


HISTORY  OF  PERSONNEL 


function  of,  193 

placement   of   specialists   in,    196, 

197 

subsidiary  operations  of,  194,  195 
Artillery  equipment  expansion,  29 
Assignment  chart  (limited  service 

men),  343 
Assignment  of  men  geographically, 

240 
Aviation      section,      Signal      Corps 

(See  Air  Service) 
Axelson,  Mr.  C.  F..  102.  109,  591 

B 

Baker,  Hon.  Newton  D..  62,  678 
Balancing  a  unit, 

examples  of,  117,   118 
general   principles  of,   292 
methods  of,  295 
new  organizations.  293-304 
occupational  needs  in,  293,  298 
partially     formed    organizations, 

305-307 

requisitions   in.    301-304 
supply    and    demand    factor    in, 

297-299 
use  of  intelligence  tests  in,  295, 

297 

Balancing  units.  84.  239-240 
Balcom,   Mr.   J.    A..   351,   353,   375, 

381 

Beams.  Capt.  D.  E..  75 
Beard.   Mr.  C.   R..   102.   107 
Beckham.  Col.  D.   Y.,  275,  474 
Bentley.  Dr..  54 
Berres,    Mr.    A.   J..   349 
Bickell,   Mr.   Ralph   T..   108.   399 
Bigelow,    Maj.    Warren,   486 
Bingham.  Lt.  Col.   (Dr.)   W.  V.,  42. 
43,  55.  56,  57,  59,  64.  80.  101, 
105,  107.  181.  203,  359,  409 
Bjornstad.  Brig.  Gen.  (Maj.)  A.  W., 

46 

Bowman,   Capt.    R.   G.,   487 
Boyd,  Capt.  Richard  L.,  68.  71 
Boyd,   Mr.   Storm  V.,  102.  106,  381 
Brackett,  Col.  E.  G.,   513 
Brasher,  Mr.   Philip,  66.   71.  75 
Broadhead,  Mr.  J.   W..  376 
Brooks.  Lt.  Com.  Leroy.  653 
Brown,   Mr.   L.   L.,  109 
Bugge,    Col.    (Maj.)    Jens,    65,    68, 

69,  70 
Buhler.  Capt.  E.  O..  107.  373 


Bureau  of  Labor  Statistics,  348 
Bureau   of    Salesmanship    Research, 

41-43,  44,  56 
Burg,  Mr.  J.  C.,  102,  402 
Burnham,  Capt.  C.  D.,  477 
Burtt,  Capt.  H.  E.,  54,  617,  620 
Byrnes,  2nd  Lt.  R.  J.,  105 

C 

Cadets — Air -Service  (See  Air  Serv- 
ice) 

Camp   commanders,   67 
Camp  Joseph  E.  Johnston, 

division    of    personnel    work    at. 

640 

early  personnel  work  at.  641-643 
organization  of,   640 
procedure    in    receiving    men,    at, 

646 

rating   scale   instruction,    at,   643 
reorganization  of  personnel  work, 

at,   643-649 

Camp   medical   officer,   257 
Camp  Meigs,  649 
Camp  procedure,  105 
Campbell,  Capt.  E.  H.   (USX),  653, 

656 

Carberry,  Col.  J.  E.,  630 
Carnegie    Institute    of    Technology. 

42,  44 

Carruth,  Mr.  Wm.,  638 
Casuals.      paper-work      concerning. 

465 
Catlln,    Brig.    Gen.    A.    W.,    <U.    g. 

M.   C.),   658 
Cavalry,     personnel     specifications 

190 

Census,  595 
Central  distributing  office. 

cooperation      of.      with      General 

Staff,  403 
cooperation  of,    with   staff  corps, 

404 

demobilization  of,   112.  429 
development  of.  391-397 
distribution  of  draft  by.  405 
early  activities  of,  391-394 
first    requisitions    on.    391 
function  of,  389-390 
industrial    furlough   section,    398 

423-427 

organization   of,   108,   109,  398 
planning  group  In,  105 


INDEX 


699 


plans   to    expedite    procedure    In, 

427-428 

priorities   work  in,   390 
problem   of   limited   service   men, 

427 
requisition    demand    section    of, 

398-401 

requisitions  filled  by,  408 
statistical    studies   by,    109,    202- 

211,    409-419 

supplying  chemists  by,  420-421 
supplying   railroad  men  by,   422- 

423 

supply  section  of,  401-403 
(See    central    personnel     records 

office) 

Centralization   of   personnel   organ- 
ization,  95-100,  499-506 
Central  personnel  division,  276 
Central   personnel   record   office,    78 
Chapman,  Dr.   J.   C.,  364,  381,  382 
Character  of  enlisted  men,  137-139 
Chart  A,   74 
Chart  B,   74,   204,   239 
Chase,  Mr.  C.  R.,  102 
Chemical  Warfare  Service, 

chemists  supplied  to,   420-421 
personnel    specifications    of,    191 
Chemists'   questionnaires,  137,  138, 

420 
Civilians'    qualification    card,    636, 

637,  639 

Civil  Service  Commission,  348 
Clark,    Lt.    Col.    (MaJ.)    GrenvIIle, 
46,  52,  59,  62,  64,  69,  70,  78, 
79,  80,  101,  390,  434,  529,  530, 
559,  596 
Clark,    Mr.    Wm.,    66,    72,    75,    102, 

107 
Classification  and  rating  of  officers' 

subsection,  CCP,  109 
Classification  Division,  AGO,  111 
Classification  officer, 

creation  of,  79,  276,  277 
duties  of,  277,  279 
organization  of  office,  of,  278 
Classification    of    occupations    (See 

Occupations) 
Classification  of  personnel, 

commissioned,  Air  Service,  604 
development  of  procedure  of,  80, 

81 
enlisted,  61,  62 


Classification  system,  operation  of, 
classifying  cards,  155-159 
interviewing,  153-155 
standardization  of,  155-157 
tabbing  cards,  159-161 
tallying  for  report,  161 
trade  testing,  155 
use    of    card    by    company    com- 
mander, 161-162 
Clayton,  Mr.  C.  T.,  348 
Clerical  workers, 

recruiting  campaign  for,  509 
Clothier,   Lt.  Col.    (Mr.)    R.   C.,  57, 
62,  63,  64,  66,  71,   75,   83,  92, 
101,  104,  106,  146,  433,  665 
Coast  Artillery  Corps, 

cooperation  of  CCP,  with,  58 
installation   of   personnel   system 

in,  108 
personnel    organization    In,    271- 

272 

personnel  problems  of,  477 
personnel    specifications    of,    189, 

190,  272 
personnel    work   in,    76,    77,   269- 

273 
Coffin,    Maj.    C.    R.,    652,    653,    656, 

658,   661 

Colored  draft,  402,  407 
Coman,  Capt.  D.  J.,  72 
Commissioned  personnel, 
growth  of,  34-35 
personnel  work  with,  217-222 
Commissioned      personnel      branch, 

275 

Commissioned     personnel     adminis- 
tration,   centralized,    226 
Commissioned    personnel     specifica- 
tions, 

causes  of,  223 
development  of,  226,  227 
explanation  of,  228,  229 
Illustration  of,  230 
preparation  of,  224,  225 
scope  of,  231 
use  of,  227,  232 

Commissioned  personnel  work   (See 
commissioned  personnel  specifi- 
cations ;    officers'    qualification 
card ;  rating  scale) 
Commissioning, 

change  In  method  of,  226 
in  regular  armj,  557 
in  reserve  corps,  557 


700 


HISTORY  OF  PERSONNEL 


Committee  on  Classification  of  Per- 
sonnel in  the  Army, 
administrative      sub-section      of, 

109,  110 

allotment  sub-section  of,  108 
armistice,  effect  on,  111-112 
attitude  of,  on  trade  tests,  358, 

362 

beginnings  of  expansion  of,  61 
central  personnel  record  office  of, 

78 

change  In  function  of,  61,  62 
classification  and   rating  of  offi- 
cers'   sub-section   of,    109 
composition  of,  10 
cooperation     of,     with     Surgeon 

General,  79 
early  tasks  of,  57-59 
establishment  of,  53-62 
expansion   of   functions   of,    145- 

147 

expansion  of  office  of.   60 
extension  of  work   of,   63-77 
field  direction  sub-section  of,  107 
forms  of,  started,  63,  64 
liaison  of,   with   American   Expe- 
ditionary Forces,  82,  83 
liaison  of,  with  Field,  81,  82 
list   of   personnel    of    (inc.    asso- 
ciates and  assistants),  671-676 
location  of  office  of,  60 
militarization  of,  101,  102,  104 
organization  of,   after   armistice, 

110-112 

organization  of,  at  time  of  armis- 
tice, 104-112 
organization    of,    under    General 

Staff,   100,  101,  104-112 
period  of  development  of,   78-94 
personnel  of,  57,  671 
planning  sub-section  of,  105 
plans  for   organization   of,   55-56 
relationship  of,  to  EST,  532,  533, 

537-539 

relationship  of,  to  other  depart- 
ments     (See     Cooperation     of 
CCP.  etc.) 
statistics  by,  on  man-power,  202- 

216 

training  sub-section  of,  109 
trade  test  division  of,  78,  347 
transfer  back    of,   to   AGO,    110- 
112 


transfer  of,  to  General  Staff,  99, 

100,  275 

War    Service    Exchange    sub-sec- 
tion of,  109 

Committee  on  Education  and   Spe- 
cial   Training    (See    Education 
and  Special  Training,  etc.) 
Committee     on     Engineering     and 

Education,  80 
Company  commanders'   paper-work, 

253 
Comparative     strength     of     service 

(See  Strength  of  Army) 
Congressional    correspondence,    496 
Cooperation    of    CCP    with    other 

departments, 
Adjutant    General's    Office     (See 

Adjutant  General's  Office) 
Air  Service   (See  Air  Service) 
Marine       Corps       (See      Marine 

Corps) 

Medical    Department    (See    Medi- 
cal  Department) 
Navy  (See  Navy) 
Provost  Marshal  General's  Office 
(See     Provost     Marshal     Gen- 
eral's Office) 

Quartermaster  Corps  (See  Quar- 
termaster Corps) 
Surgeon     General's     Office     (See 

Medical  Department) 
Conley,  Col.  E.  T.,  474 
Consolidation   of   statistical,    insur- 
ance,     and     personnel      work, 
246-252 

Cooley,   Mr.,   375,   376 
Corbusier,  Maj.  H.  D.,  513 
Coss,  Lt.  Col.   (Dr.)   J.  J.,  80,  101, 
106,    227,    486,    492,    635,    643, 
866 
Council    of    National    Defense,    40, 

53-55,  80,  595 
Crippen,   Capt.   T.  R.,  75     • 
Crowder,  Maj.  Gen.  E.  H.,  596 

D 

"Dally  Letters,"  434,  445-447 

Daly,   Col.   Chas.   P.,   634 

Dartmouth  College,  40 

Davies,  Mr.  I.  B.,  93,  110,  587 

De  Blois,  Mr.  J.  M.,  350 

De   Field,   Mr.   W.   R.,   79,   82,   245, 

254,    583,    585,    586,    635 
Delabarre,  Mr.  E.  M.,  102,  107 


INDEX 


701 


De  Lancey,  Mr.  Darragh,  423 
Demobilization, 

cooperation   with   Department   of 
Labor,  670 

duties    of     Central     Distributing 
Office,   In,  429 

early  planning  on,  665-666 

English  plans  for,  665 

general  process  of,  667-669 

instructions  on,  668 

personnel  office  in,  669 

plans  on,  proposed,  666 

planning  group  on,  106 

value  of  classification  in,  158 
Department  of  Labor,  348 
Depot  brigades, 

establishment  of,  395-397 

functions  of,  87,  259 

officers  of,  257 

operation  of,  87-90 

shipping  men  out  of,  266,  267 
Detchon,  Capt.  D.  C.,  377 
Development  battalions, 

authorization  of,  336 

board  of  control  of,  514,  515 

causes  of,  512,  513 

extent  of  growth  of.  525-527 

new  order  on,  520-525 

organization  of,  513-515 

original  classification  in,  336-338 

personnel  work  in,  515-518 

physical  findings  in,  141,  149 

planning  group  on,  105 

plans  for,  89,  90 

projected    improvement    of,    518- 
525 

purpose  of,  514 

subsequent  classification  in,  339- 
341 

supervision  of,  107,  108 
Dietz,  Mr.  J.  W.,  62,  72,  75,  533 
Dilley,  Capt.  C.  C.,  191 
Dilution  of  personnel,   22 
Disloyalty,  suspected,   139 
Dissette,  1st  Lt.  J.  W.,  107,  190 
Distribution  and  supply  of  enlisted 

men,  108 

Dodd,  Mr.  A.  E.,  92,  184,  191,  227 
Dodge,  Lt.  Com.   (Dr.),  54,  57,  58, 

101,  653,  654 

Donnelly,  1st  Lt.  C.  P.,  486 
Dooley,  Mr.  C.  R.,  66,  71,  533 
Dortch,  Capt.  J.  T.,  72 
Dougherty,  Mr.  N.  F.,  66,  71,  75 


Downing,  Capt.  J.  S.,  68,  71 
Draft, 

analysis  of,  533 

operation  of,  31,  32 

receiving,  the  (See  Receiving  the 

draft) 

registration  for,  29 
statistics  on,  409-419 
Draft  distribution,  relation  of  per- 
sonnel statistics  to,  414-416 
Draft    increments,    distribution    of, 

405 

Dugan,  Mr.  F.  F.,  102 
Dunn,  Capt.  T.  S.,  71 

E 

Easby-Smith,  Col.  J.  S.,  595 
Economy  of.  personnel,  18-24,  26 
Educational    qualifications,    187-188 
Education    and     Special     Training, 

Committee  on, 
assistance   to,   409 
causes  of,  528,  529 
connection  of,  with  War  Service 

Exchange,   506 
establishment  of,  80,  203 
organization  of,  529,  530 
origin  of,  390 

procedure  followed  by,  530-531 
training  program  of,  533-536 
use  by,  of  occupational  statistics, 

202 

Education,  recording  of,  127-130 
Edwardsen,  Capt.  C.  A.,  68,  71 
Ehrlich,  Capt.  F.  W.,  68,  71 
Elementary  trade  examination,  539 
Embarkation,   ports  of,    (See  ports 

of  embarkation) 

Emergency  fleet  corporation,  595 
Employers,     former,     opinions     of, 

135-138 

Employment  management,  89-41 
Employment      managers'      associa- 
tions, 40 
Employment   service    (U.   S.),   348, 

670 
Engineer  Corps, 

personnel    specifications   of,    190, 

191 

supply  of  railroad  men  for,  422 
transfer  of  men  to,  288 
Enlisted    personnel    administration, 

32-34 
Enlisted  reserve  corps,  31 


702 


HISTORY  OF  PERSONNEL 


Evans,  Mr.  R.  F.,  364,  381 
Ewing,  Capt.  Lawrence,  68,  71 


V 


Federal  board  for  vocational  educa- 
tion, 80 

Feld,  1st  Lt.,  Fred  A.,  75 
Fell,   Mr.    Albert   D.,   351 
Fenton,  Col.  Chas.  W.,  48 
Ferguson,    Col.    A.    M.,    51,    85,    97, 

104,  110,  275,  435,  474 
Field  Artillery,  personnel  specifica- 
tions of,  191 
Field    direction    sub-section,    CCP, 

107,   111 

Field,  Mr.  J.  R.,  350 
Field,    Mr.    W.    S.,    375,    376,    634, 

636,  638 

Field  supervision,  85 
Fisher,  Capt.  Boyd,  40 
Fisher,  Mr.  F.  T.,  78,  348 
Flying  ability,  618 
Forerunners     of     Army     personnel 
system    (See   sources   of  Army 
personnel  system) 
Former  employers,  letter  to,  42,  43 
Forms 

AGO  22-2,   253 

AGO  29,  590 

AGO  525-527,  255 

AGO  638,  255 

beginnings  of  CCP  series  of,   63, 
64 

CCP,  109 

CCP  1,    64,    118,    120,    121,    124, 
125 

CCP  3,  137,  138,  288,  425 

CCP  4,  151,   172,  288 

CCP  7,  172 

CCP  8,  289 

CCP  9,  286 

CCP  11,  290 

CCP  12,  636 

CCP  14,  399 

CCP  15,  161,   287 

CCP  201,  322 

CCP  203,  322-324 

CCP  203-M.  I.,  561 

CCP  207,  561 

CCP  457-482,  190,  191 

CCP  490,  232 

CCP  504,   174,  356 


CCP  601,  341 

CCP  1102,  567-560 

CCP  1102-S.  C.,   568 

CCP  1105,  574 

CCP  1110,  636 

CCP  1120,  j.50,    151,    224,    225, 
227 

CCP  1155,  575 

CCP  1200,  637,   639 

changes  in  CCP,  82 

Chart  A,  180 

Chart  B,  181,  239 

CPB-GS,  150,  575 

growth  of  CCP,   93 

strength   returns,   589,   590 

TT-1,  156,  352,  353 

TT-2,  351,  353,  371 
Frazier,    Mr.    L.    R.,    80,    108,    181, 

398,  412 

Free,  Miss  M.  L.,  93,  110 
French,  Mr.   H.  E.,  102,  107 
Friede,  Maj.  S.  A.,  107,  638 
Fuess,   Maj.    C.    M.,   268,   634,   640, 

643,  645 
Functionalization 

in  army,  95 

in  industry,  7 

in  military  duties,  4,   8 

in  personnel,  5-8 
Function  of  army  unit,  193 
Furman,   Mr.   E.   H.,   107 


Q 


Gardner,  Mr.  H.  L.,  57,  58,  78,  391 
Gauche,  Lt.-Col.    (Capt.)    E.  E.,  74 
Gaugler,  Maj.  R.   L.,  376 
General  principles  of  personnel 

definite    personnel    requirements, 
11-16 

economy  of  personnel,  18-24 

.functionalization,    3-8 

human  differences,   8-11 

morale,  24-25 

organization,  16-18 

summary  of,  26 
General  Staff 

CCP  transferred  to,  99,  100,  275 

Operations  Division  of,  275 
Gillmore,  Lt.  Col.  W.  E.,  568 
Glasgow,  Col.  Wm.  J.,  48 
Glenn,  Brig.-Gen.  E.  F.,  51 
Goethals,  Maj.-Gen.  G.  W.,  568,  634 


INDEX 


703 


Golden,  Mr.  P.  N.,  381 

Gorgas,   Surgeon-General  W.  C.,  55 

Graves,  Mr.  E.  B.,  93 

Gregg,   Capt.   James,   92,   107,   184, 

190,  227 
Grlerson,  Capt.  W.  C.,  78 


II 


Haas,  1st  Lt.  G.  F.,  379,  382 

Hahn,  Maj.  G.  H.,  636 

Hale,  Mr.  W.  B.,  102,  105,  108,  391, 

398,"  412 

Halllday,  Mr.  E.  R.,  102 
Hayes,  Maj.  J.  W.,  106,  383,  601 
Harris,    MaJ.-Gen.    P.    C.,    91,    245, 

255,  474,  585,  591 
Harrison,  Mr.  J.  W.,  104 
Hayne,  Maj.  P.  T.,  69 
Henderson,  Capt.  V.  H.,  476 
Henmon,  Capt.  V.  A.  C.,  618 
Holbrook,    MaJ.-Gen.    W.    A.,    379 
Hollerith  card  system,  143 
Holt,  Dr.   E.  B.,  109 
Honeyman,  Capt.  Bruce  R.,  72 
Hoopingarner,  Lt.  N.  L.,  268,  377 
Hotchkiss,  Mr.  G.  B.,  102,  109 
Hopkins,  Mr.   L.  B.,  102,   106,  365, 

375,  377,  383 
Hughes,  Miss  D.,  93,  110 
Human    differences    in    the    Army, 

8-11 

Hunt,  Maj.  E.  O.,  48 
Hutchison,     Maj.-Gen     R.      (C.  B., 

D.  S.  O.) 

address  by,  684-696 
effect  of  visit  to  U.  S.,  86,  474 

I 

Illiteracy,  141 
Index  of  occupations 

changes  in,  123,  126,  127 

development  of,  13,  78,  83 

nature  of,  169-172 

no  application  of,  to  officers,  217, 
218 

origin  of,  348 

preparation  of,  354 

use  of,  by  PMGO,  595-598 
Index    of    personnel    demand    (See 

personnel  demand) 
Industry 

furloughlng  man  to,  424 


Industrial   demobilization,   666 
Industrial  furlough  section,  423-427 
Infantry,     personnel     specifications 

of,  191 

Information  sheet,  224,  225,  227 
Inspection  of  units 

final,  108 

at  ports  of  embarkation,  84,  85, 

108,  458-465 
Insurance  work,   consolidation  with 

personnel,  246-252 
Intelligence  qualifications,   187 
Intelligence  tests 

air    service    enlisted    men's,    628- 
630 

air  service  officers',  614-617 

approval  of,  79 

development,  11,  600-602 

early  development  of,  54,  55 

experimental  use  of,  79 

meaning  of  scores  in,  132-134 

recommendation  of,  79 

recording  of  score  of,  on  CCP-1, 
134,  155 

separation  of,  from  CCP,   59,  60 

use  of,  187,  295-297,  325,  344. 
Interviewer's  blank,  42,  43 
Interviewing 

by  company  commanders,  153 

by  enlisted  men,  154,  155 

by  officers,  154 

estimate  of  trade  ability  in,  119 

procedure  of,  119,  153-155 

supervision  of,  80,  81 

supplementing    with    trade    test, 
347 

See  aids  for  interviewers 
Intra-camp  correspondence,   584' 
Inventory  of  personnel,  636 

J 

Jenkins,  Capt.  S.  R.,  486 
Jerremanus,  Maj.  H.  W.,  376 
Jervey,  Maj.-Gen.  Henry,  101 
Johnson,     Brig.-Gen.,    H.     S.,    390, 

529,  595 

Johnson,  Col.  W.  C.,  374 
Johnston,  Col.  W.  T.,  47,  52 
Job  Analysis 

application  of,  to  officers,  217-222 
by  unit  commander  238,  239 
extent  of,  applied  to  officers,  223- 
226 


704 


HISTORY  OF  PERSONNEL 


need  for,  74 

place  of,  in  personnel  work,  11-16 
standardization   of,   347 
Jones,  Mr.  Carl  W.,  102,  493 
Jones,  Mr.  M.   M.,  66,  71,   78,  156, 
349,    353,    357,    358,    363,    364, 
365 

K 
Kelley,  Dr.  T.  L.,  78,  79,  358,  359, 

361,  381 

Kempter,  Maj.   (Capt.)  B.  J.,  76 
Keppel,  Mr.  F.  P.,  45,  52,  62,  559 
Kimball,    Lt.-Col.   R.    H.,    108,    404, 

638 

King,  Col.  Edward,  515 
King,  Mr.  R.  B.,  66,  71 
Kirby,  Dr.  T.  J.,  364 
Kirk,  Lt.  G.  C.,  485 
Knox,  Capt.  Frank,  68,  71 
Kruse,  Dr.  P.  J.,  381 
Kyle,  Capt.  W.  H.,  74 

L 

Labor,    Department    of,    177,    491, 

595,  666,  670 
Ladd,    Brig.-Gen.    (Col.)    E.   F.,   45, 

46,  559 
Languages,    ability   to    speak,    128- 

130 

Larimer,  Capt.  Joseph  M.,  107,  190 
Larimore,  Capt.  N.  W.,  76 
Lawrence,  Capt.  W.  C.,  68,  71 
"Laws"    of    personnel    administra- 
tion,   (See    general    principles, 
etc.) 

Leadership,  capacity  for,  186 
Leadership    experience,  130-131 
Lentz,    Lt.-Col.    Bernard,    92,    512, 

515 

Leonard,  Mr.  G.  M.,  102,  591 
Letter  to  former  employers,   138 
Lewis,  Mr.  G.  I.,  591 
Lewis,  Mr.  James  H.,  102 
Limited  service  men 

authority  to  accept,  140 

classification  of,  335-341,  515 

handling  of,  402,  406 

in  Army,  331,  332 

in  British  army,  332,  333 

in  industry,  330,  331 

intelligence    ratings    in    use    of, 

344 
need  for,  333,  334 


personnel   specifications  for,   341- 

344 

use  of,  91,  92,  512-514 
See  development  battalions 

Lindley,  Lieut.  Thomas,  486 

Line    Officers    in    development    bat- 
talions, 516 

Local  boards  (See  draft) 

Lochridge,  Col.  P.  D.,  64 

Long,  Brig.-Gen.  C.  S.  (USMC),  658 

Loughran,   Lieut.    (USN),   653 

Lyans,  Dr.  C.  K.,  382 

Lytle,  Lieut.  H.  S.,  485 


MacArthur,   Mr.   W.   S.,   66,  75,   76, 

92 

McCain,  Maj.-Gen.  H.  P.,  45,  56,  61, 
62,  63,  69,  74,  75,  86,  474,  559 
Machine  Gun  units,  personnel  spec- 
ifications of,  191 
Magee,  Mr.  Hugh  F.,  492 
Man  Analysis,  8-11,  115-169 
Mann,  Dr.  Charles  R.,  533 
Man-power  supply,  30 
Man's    best    usefulness,    determina- 
tion of,  19 

Marine  Corps,  personnel  work  In 
installation  of,   at   Paris   Island, 

660,  661 
installation  of,  at  Quantico,  658, 

660 

installation  of,  requested,  658 
Mathewson,    Mr.    S.    B.,    102,    106, 

374,  375,  883 

Mattice,  Lt.-Col.  Royal,  74,  85,  108 
Maxfield,  Dr.  F.  N.,  617 
Medical     classification,     140,     141, 

149 
Medical  Department 

cooperation  of  CCP,  with,  59,  60, 

599-603 

development    battalions,    513-516 
Division  of   Psychology,   600-602 
Division  of  Physical  Reconstruc- 
tion, 602,  603 

personnel  specifications  of,  191 
Meine,  Mr.  F.,  381 
Mental   alertness  test    (See   intelli- 
gence test) 

Mental      tests      (See      intelligence 
tests) 


INDEX 


705 


Methods  of  rating  officers  (See 
rating  scale) 

Methods  employed  to  interest  of- 
ficers in  proper  placement  ot 
men,  308-317 

Militarization  of  CCP,  101,  102 

Military  Aeronautics  (See  Air  Serv- 
ice) 

Military  associates  of  CCP,  672, 
673 

Military  demobilization,  666 

Military  experience,   131 

Military  history,   131 

Military  policy,  reversal  of,  27 

Miscellaneous  Section,  Personnel 
Branch,  Operations  Division, 
General  Staff,  104,  110 

Misfits,  placement  of,  512,  513 

Miles,  Dr.  W.  R.,  54,  617 

Miner,  Dr.  J.  B.,  42,  43 

Mock,  Lt.-Col.  H.  E.,  92,  514 

Moore,  Maj.  J.  Perry,  72,  489 

Morale,  24,  25 

Moreland,  Capt.  W.  D.,  76 

Motor  Transport  Corps,  personnel 
specifications  of,  190 

Mustering  officer,  253 

Myers,  Brig.-Gen.  J.  P.  (USMC), 
660,  661 

N 

National  army  camps 

civilian  supervision  in,  65-74 
personnel  work  in,  started,  64-74 
National     Army     training     detach- 
ments, 402,  404,  407 
National     Association    of    Employ- 
ment Managers,  41 
National  guard  camps 

civilian  supervision  in  75,  76 
personnel  work  in,  started,  74-76 
National  guard  divisions,  balancing 

units  in,  305 
National  Research  Council,  43,  53- 

55,  57 

Navy,   personnel   work   in 
at  Newport,  653 
installation  of,   652-654 
need  for,  650-652 
plan  for,  654-656 
qualification   card   for,   656,   657, 

659 
Needs,  standardization  of,  191 


Needs,     Army      (See     occupational 
specialists ;  occupational  needs ; 
personnel   specifications) 
New  divisions,  creation  of,  90,  91 
Newport     Naval    training    station, 

653 

Nicholson,  Col.  Wm.  J.,  51 
Norris,  1st  Lieut.  E.  C.,  587 
Northwestern  University,  40 


O'Connor,  Mr.  D.  J.,  102,  105,  643 
Occupational  census,  20.8,  594,  595 
Occupational  classification,     expan- 
sion of,  178 

Occupational  history,   118-127 
Occupational  index    (See    index    of 

occupations) 
Occupational  list,   for  PMGO,   172, 

173 
Occupational  needs   (Tables  of) 

analysis  of,  by  QMC,  638 

chart  A,  180 

chart  B,  181 

checking  of,  182 

Coast  Artillery,  272 

development  of,   14,  179-181 

divisional,  181-182 

early  beginnings  of,  74 

first  issue  of,  83 

investigation  of,  by  War  Service 
Exchange,  493 

limitations  of,  182,  183 

need  for*  531,   532 

results  achieved  through  use  of, 
201 

revision  of,  182 

source  of,  347 

statistics  on,  409-419 

use  of,  182,  293 
Occupational     organization,     tables 

of,  200,  201 

Occupational    qualifications,    insuf- 
ficiency of,  .185-189 
Occupational   reports 

development  of,  161,  391-394 

periodic,  285,  286 

preferred  occupations  on,  288 

special,  287,  288,  401 

report  of,  161 

specifications  for,  173-177 

standardization    of    terminology, 
173-177 


706 


HISTORY  OF  PERSONNEL 


supplementary,   169 
symbols  for,  170-171 
Officer  material,  first  demands  for, 

223,  226 

Officer   material,    selection    of 
final   (SATC),  327-329 
general  methods  of,  319-320 
intelligence  ratings  In,   325 
patriotism  factor  in,  327 
problem  of,  318-320 
procedure  of,  at  first  series,  321 
procedure     of,     at     later     series, 

321-326 

procedure  of,  in  SATC,  327 
procedure  of,  with  civilians,  326- 

327 

rating  scale  in,  322-324 
Officers 

classification  of,    79 
classification    of    occupations    of, 

217-219 

job  analysis  of  duties  of,  217-222 
Officers'  qualification  card 
disposition   of,   554 
first  edition  of,  217-218,   543-546 
illustration  of,  544,  545  548,  550, 

552 
introduction  of,  into  the  line,  547- 

549 
introduction  of,  in  the  staff  corps, 

553 
later  editions  of,  218,  219,   546, 

547 

Occupational  specialists- 
American     expeditionary     forces, 

statistics  on,  212-216 
assignment  of  rare,  90 
classification  of,  among  officers, 

217-220 
classification   of,  by   PMGO,   595- 

598 

definition  of  needs  for,  178 
determination  of  needs  for,   202- 

216 

distribution   of,    398 
handling    requisitions    for,     528, 

529 

methods  of  obtaining,  505-508 
needs   in,    to   May    1,    1918,    204- 

207 

placement  of  rare,  108,  109 
priority    of,    390 
requisitions  for,  78 


staff  corps  demands  for,  209-211 
statistics  of,  by  draft  increment, 

208 

statistics  on,  203 
training  of,   79,  80 
Occupational    terminology    adopted 

by  PMGO,  596 
Occupations 

changes   in,   166-169 

classification  of,   165,   173 

definition  of,   173-175,   354-356 

index  of,  169-172 

listing  of,   165 

lists  of,  166-168 

need  for  expanded  list  of,  173 

recording  of   man's,   119-127 

list  of  occupations  on,  217-222 

origin  of,  18,  217,  543 

report    on    effectiveness   of,    549, 

551 

request    for,    from   American    Ex- 
peditionary  Force,  549 
suggested  changes  in,  220-222 
tabbing  of,  218 

use  of,  by  entire  Army,  553,  554 
use  of,   in  American   Expedition- 
ary Forces,  553 
use  of,   in  Quartermaster   Corps, 

635 

use  of,  made  official,  551 
uses  of,   554-558 
Officers'     qualification     card     files, 

591,   592 
Officers'    rating    scale    (See    rating 

scale) 
Officers'  training  schools 

commissioning  candidates  at,  327- 

329 
selection  of  men  for   (See  officer 

material,  etc.) 
Operations  Division,   General   Staff, 

78,  99,  100,  275,  390,  403. 
Ordnance  Department 
officers'  ratings  in,  578 
personnel  problems  of,  477 
personnel    specifications   of,    191 
personnel  work  in,  268 
recruiting  campaign  of,  508 
Organization   commander,  duties  at 

port  of  embarkation,  459-462 
Organization  of  personnel  force,  16," 

17 


INDEX 


707 


Osborne,  Mr.  C.  F.,  348 
O'Shea,  Miss  Harriet  E.,  381 


Page,  Maj.  (Mr.)  G.  F.,  92,  99,  107, 

435 

Palmer,  Rear  Admiral  L.  C.,  653 
Paper-work 

early  causes  for  increase  of,  244- 

24G 

rise  of,  93 

study  of,  78,  79,  245,  583-586 
Parsons,  Mr.  G.  F.,  382 
Parsons,  Dr.  R.  P.,  617 
Pattlllo,   Mr.   G.   S.,   110 
Peacock,  Maj.  D.  W.  K.,  103,  106, 

270 

Performance  records,  17,  18 
Perry,  Capt.  E.  R.,  487 
Perry,  Capt.  Francis  W.,  68,  71,  82, 

253 

Perry,  Dr.  R.  B.,  179,  348 
Pershing's    six-phase    project,    208, 

410 
Personal    habits,   estimate   of,    137- 

139 

Personal  history  blank,  42,  43 
"Personnel"  (publication) 
beginning  of,  447 
circulation,  of,  451 
editorial  policy  of,  450 
first  issue  of,  447-449 
forerunners  of,  445-447 
later  development  of,  449 
need  for,  444 
results  of,  450-453 
Personnel  adjutent 

duties  of  balancing  units,  295 
duties  of — demobilization,  667 
duties  of — port  of  embarkation, 

456 

duties    of — requisitions,    283-291 
regimental,  299,  300 
See    personnel    office ;    personnel 

officer 
Personnel    administration 

general  principles  of  (See  general 

principles,  etc.) 

lack  of  centralization  of,  93,  94 
Personnel  board,   557 
Personnel  branch  (Operations  Divi- 
sion)   General    Staff,    99,    100, 
104,  110,  223 


Personnel   Classification   Division — 

Navy,  654-656 

Personnel  demand,  index  of,  413 
Personnel  Manual,  82,  83 
Personnel     methods,  30 
Personnel  office 

changes  in,  247,  248 

early  organization  of,  243 

early  plans  for,  235 

early  work  of,  236-239 

enlargement  of,  258 

increased  authorization  for,  261 

organization  of,  244 

proposed  reorganization  of,  278 

recognition   of,    in   receiving   the 

draft,  258 

rise  of  paper-work  in,  244-252 
trade  test  division  of,  261,  262 
See  Personnel  Adjutant ;  person- 
nel  officer ;    personnel   work 
Personnel  Officers 

as  assistant  to  adjutant,  244 
demand  for,  470,  478 
development  battalion,  515-518 
direct  correspondence  with,  435 
duties — educating  superiors,  308- 

317 

list  of  original,  676,  677 
relation    to    receiving    draft    by, 

253-257 

service  rendered  by,  244 
supervision  of,  436-443 
training  of  (See  personnel 

school ) 

Personnel    organization 
centralization  of,  499-506 
in  camps,  82 

personnel  of.  671-677       .• 
Personnel   records,   17,  18 
Personnel       requirements,      officers 
(See    commissioned     personnel 
specifications) 
Personnel    requisitions   by    General 

Pershing,   116 
Personnel  school 
aim  of,  485 

Coast  Artillery  officers  at,  271 
discontinuance  of,   112 
effect  of  first,  475 
effect  of,  on  receiving  the  draft, 

257 

effect  of,   on   staff   corps  person- 
nel work,  269 


708 


HISTORY  OF  PERSONNEL 


eleventh,  478-486 

expansion   of,   478 

first,  470-475 

instruction    in    interviewing    at, 

154 

interviews  at,  474 
later  series  of,  475-478 
need  for,   469-470 
operation  of,  109 
program  at,  471-473,  485 
results  of,  490 
selection  of  candidates  for,  479- 

484 

source  of  supply  for,  479 
study  of  special  problems  at,  476 
SATC,   486-488 
trade  test,  488 
transport,  489 

within    personnel    office,    488-489 
Personnel  specifications 

Coast  Artillery,  189,  190,  272 

definition  of,  178 

examples  of,   184,  185 

expansion  of,  189 

limited  service,  341-344 

methods  of  preparation  of,   191- 

201 

need  for,  178,  179 
need  for  centralizing  preparation 

of,  193 

occupational    needs   precede,    179 
origin  of,  184 
place  of,  In  personnel  system,  15, 

16,  92,  178 

planning  group  on,  107 
qualifications  considered  by,  184- 

189 

scop%  of,  190,  191 
tables    of   occupational    organiza- 
tion, 200,  201 

use  of,  in  balancing  units,  293 
Personnel      specifications,      officers 

(See    commissioned    personnel 

specifications) 
Personnel    specifications   unit,    190- 

192,  227 

Personnel   supervision 
districting  of,  81,  439 
expansion  of,  92 
extension  of,  80,  81 
group  in  charge  of,  107 
organization   for,  433 


Personnel  supervisors 
conferences  of,  68-72 
direction  of,  by  central  office,  436- 

443 

duties  of,  439-441 
early  methods  of  supervision  of, 

445 

educational  work  of,  317 
list  of,  71,  72,  673-675 
military,  442 
plans  for,  65-67 
report  by,  436 
securement  of,   66 
trade  test,  442 
traveling,  81 
work  in  field  by,  438 
Personnel  Supply 

estimate  of,  for  EST,  532 
Navy,  650 

PMGO  study  of,  595 
statistics  on,  409 
war  service  exchange  use  of,  495 
Personnel  work 

animosity  toward,  308-311 

at  camp  Johnston,  640-649 

at  ports  of  embarkation,  454-465 

centralization  of,  86,  95-103 

consolidation  of,  with  statistical 

and  insurance  work,  246-252 
educating  officers  to  meaning  of, 

313-317 
endorsement  of,  by  War  College, 

64 

extension    of,    to    all    divisional 
camps,  242,  243 
extension  of,  to  staff  corps,  92 
In        American        Expeditionary 

Forces,  83 
In  camps,  105 
In  Coast  Artillery  Corps,  76,  77, 

108,  269-273 

In  demobilization,  667-670 
In  development    battalions,    SIS- 
SIS 

In  England,  86,  474,  684-696 
In  Marine  Corps,  658-661 
In  national  army  camps,  64-74 
In  national  guard  camps,  74-76 
In  Navy,  650-657 
In  Ordnance  Department,  268 
In  Quartermaster  Corps,  268 
In  regular  army  divisions,  76 
in  SATC,  106 


INDEX 


709 


In  staff   corps    camps,    106,    268- 

273 

In  training  detachments,  535 
initial  conferences  for,  68-72 
introduction  of,  in  camps,  63-77 
introduction     of,     Into     national 

army  camps,  236-243 
keynote  of,  313 
methods    to    interest    officers    in, 

308-317 

organization    of,    for   demobiliza- 
tion, 669 

passing  of  culls,  311-313 
separation    of,    from    Adjutant's 

work.  274-279 
standardization  of  procedure  of, 

93 
supervision     of     (See     personnel 

supervision) 

transfer  of  men,  260-267 
transfer  of,  to  General  Staff,  275 
with  casuals,  465 
Physical       classification,      335-341 

(See  development  battalions) 
Physical  condition,  140-142 
Physical  qualifications,  188,  189 
Physical  reconstruction,  602,  003 
Placement  of  men,  16-18.  21,  22,  SO, 

81,  115,  134,  341-344 
Placement     chart,     limited    service 

men,  343 

Planning  sub-section  of  CCP,  105 
Plattsburg,  44,  49-51 
Poem  on  personnel,  262-264 
Pope,  Mr.  A.  U.,  93,  109 
Port   of  embarkation 

duties    of    unit     commander    at, 

459-462 

gangplank    procedure   at,    462 
handling  of  casuals  at,  465 
Inspection  report  at,  462-464 
Inspection  of  paper-work  at,   84, 

85,  458-465 

insurance  work  at,  457 
magnitude  of,  455 
paper-work  requirements  at,  454- 

455 

personnel  work  at,  454-465 
statistical  work  at,  457 
Post,  Mr.  L.  F.,  348 
Powderly,  Mr.  T.  V.,  348 
Preference,    soldier's    statement    of, 
136 


Priorities,  determination  of,  78,  83, 

108,  390 
Procurement    Section    of   Personnel 

Branch  (GS),  109,  227 
Promotion  on  merit,  25 
Provost    Marshal    General's    Office 
obtaining      specialists      through, 

394,  505-507 
occupational     classification     con- 

ferences  in,  594,  595 
occupational    list    used    by,    172, 

173 

personnel  supply  problem,  595 
statistics  for,  411 
trade  specifications  to,  356 
use     by,     of     CCP     occupational 

classification,   595-598 
Psychological  examiner,  132,  257 
Psychological     tests,     (See     intelli- 
gence tests) 
Psychology,    applied    to    personnel, 

10,  11,  41-43,  54,  55 
Puffer,  Mr.  R.  H.,  67,  72 
Purpose  of  volume,  f  6 

Q 

Qualifications  (enlisted  men) 

sources   of   information   on,    115- 

142 

Quartermaster  Corps  . 

analysis  of  needs  of,  638 
applicants'  qualification  card,  636 
civilians'  qualification  card,  636- 

639 
cooperation  of  CCP,  with  58,  634- 

649 

files  of  qualification  cards  in,  636 
indorsement  of  personnel  by,  634 
issue  of  supplies  by,  256 
officers'     qualification     card     In, 

635 

organization   of  units,   638-640 
personnel  specifications  of,  191 
personnel  work  in,  268 
personnel  work    in    central    office 

of,  635-640 

personnel    work    at    Camp    John- 
ston (See  Camp  Johnston) 
personnel   work  at   Camp   Melgs, 

649 

rating  scale  In,  634-636 
requisitions  for  personnel  by,  638- 

640 


710 


HISTORY  OF  PERSONNEL 


strength  returns  of,  638 
trade  testing  in,  634 

R 

Rader,  Mr.  Alfred  C.,  354 
Railroad  men,  transfer  of,  288,  422 
Rating  of  enlisted  men,  139 
Rating    card    (officers'),    American 

Expeditionary  Forces,  570 
Rating  of  officers 
analysis  of,  577-578 
card    used    in   American    Expedi- 
tionary Forces,  570 
quarterly,   569,  574 
quarterly    rating   sheets   used   in 

576,  577 
recording     of,     on     qualification 

card,  576 

supervision  of,  577 
Rating  scale,  officers' 
adoption  of,  93,  569 
changes  in,  571-573 
development  of,  59,  571-575 
early  work  o»,  79 
first  changes  of,   47 
first  form  of,  44 
instructions  for  use  of,  93,   565- 

569 

military  interests  in,  44,  45 
'  origin  of,  44-56 

place  of,  in  personnel,  10,  42,  43 
planning  group  on,  105,  106 
quarterly  use  of,  569,   574-578 
recommended    changes    In,     579- 

580 

rejection  of,  at  Plattsburg,  44 
supervision  of  use  of,  109 
testing  of,  47-52 
trial  of,  in  eight  camps,  55 
use  of,   In  Quartermaster  Corps, 

562,  563,  634-636 
use    of,    in    selection    of    officer 

material,  322-324 
us*   of,   in   training  camps,    559- 

562 

use  of.  to  rate  officers,  563-569 
uses  of,  573-575 
Rayner,  Maj.  H.  M.,  404 
Receiving  the  draft 

coast  artillery  corps,  272 
detailed  plan  for,  256 
effect  of  personnel  schools  on,  257 
Funston  plan  for,  256 


instructions   for,   255 
personnel  officer's  part  in,  253-257 
Upton  plan  for,  253 
Receiving  depots   established,    395- 

397 

Record  of  achievement,  118-132 
Records,  checking  of,  85,  108 
Recruit  examination  building,   264- 

266 

Recruiting  campaigns,  508-510 
Recruiting  service,  30,  31 
Rees,  Brig.-Gen.  (Lt.-Col.)  R.  I.,  80, 

97,  390,  529 
Reeves,  Col.  I.  L.,  97 
Regimental      personnel      adjutants, 

299,  300 

Regular  army  divisions    70 
Reilly,  Maj.  F.  C.,  256 
Reilly,  Lt.-Col    (Mr.)   P.  J.,  67,   71, 

76,  83,  101,  107,  433,  513 
Reserve  corps  officers,  34,  35 
Reports  of  changes,  585 
Requirements,     definite     personnel, 

11-16,  20,  21 
Requisitions  demand  section,  central 

distributing  office,  398 
Requisitions 

analysis  of,  239 

camp  procedure  on,  291 

coordination  of,  108 

development  in  handling,  283 

early,  391 

filling  of,  398,  528 

improved  forms  for,  289 

local    (camp),   237,   238,   283-285, 

315,  316 

relation  of  EST  to,  529,  530 
transfer    of    1,100,000    men    on, 

118 
war    department,   241,   242,    285- 

290 

See  occupational  specialists 
Rice,   Capt.  D.   E.,  620 
Rime  of  the  Personnel,  the,  262-264 
Robinson,   Mr.   A.  C.,  78,  108,   391, 

399 
Robinson,  Mr.  E.  S.,  102,  106,  381, 

382 

Robinson,  Capt.  W.  R.,  638 
Roth,  1st  Lieut.   (Mr.)  Stanley,  493 
Rugg,   Dr.  H.  O.,  105,  578 
Ruml,  Dr.  Beardsley,  102,  106,  3«3, 
381,  382 


INDEX 


711 


Russell,  Mr.  Winslow,  80,  102,  109, 

492 
Ryon,  1st  Lt.  H.  J.,  383 


Sailors'  qualification  card,  656,  657, 

659 

Samuels,  Mr.  M.  M.,  110 
Sanctuary,    Lt.-Col.    (MaJ.)    E.    N., 

80,  492 

Sawyer,  Mr.   W.  A.,  66,  71,  75 
Schnchman,  Mr.  F.,  382 
School    for    personnel     (adjutants) 

officers  (See  personnel  school) 
Schultz,  Capt,  H.  D.,  48 
Science,  contribution  of,  to  mobili- 
zation, 53-55 

Scott,   Col.    (Dr.)    Walter  Dill,   10, 
42,  43,  44,  45,  46,   47,  48,  49, 
50,  51,  52,  55,  56,  57,  59,  62, 
64,   66,   79,   97,   101,   105,   109, 
145,  348,  559,  560,  643 
Secretary  of  War,  45,  56,  62 
Secretary  of  War,  address  by,  678- 

683 
Secretary  of  War's  annual   report, 

28,  29,  35 

Selective   service   regulations,    335 
Sengstaken,   Mr.   J.   H.,   353,   381 
Separation  of  personnel  from  adju- 
tant's work,   274-279 
Seton,  Capt.  D.  S.,  380 
Shannon,  Lieut.  (USN),  653 
Sharpe,  Maj.-Gen.  H.  G.,  634 
Shipping  board  emergency  fleet  cor- 
poration, 177 
Shipway,  Capt.  G.  E.,  108 
Signal  Corps 

cooperation  with,   57-58 
personnel  specifications  of,  190 
Sills,  Maj.  W.  G.,  51 
Six-phase  project,  208,  410 
Shatts,  Mr.  W.  P.,  364,  381 
Shaw,  Mr.  H.  P.,  108 
Shepard,  Dr.  J.  F.,  57,  58 
Sheridan,  Mr.  J.  E.,  66,  72 
Simons,  Capt.  D.  M.,  74 
Soldiers'  qualification  card 
adoption  of,  63-64 
changes  in,   122,   123,   126-129 
classification  of,  155-159 
definition  of,  143 
early  development  of,  145-147 


early  use  of,  73 

estimate  of   self  and   others   on, 

135-140 

filling  out  of,  236 
first  trial  of,  147 
illustrations  of,  120,  121,  124, 

125 

intelligence  score  on,  134 
in  the  coast  artillery  corps,  270 
Interviewing    for     119,     153-155, 

242,   243 

medical  class  on,  140-142 
military  record  on,  148,  149 
notations  on,  147-149 
occupational   list  on,  165 
physical    characteristics,    140-142 
place  of,   in  personnel,   10 
record  of  achievement  on,  118-132 
record  of  education  on,  127-130 
record  of  occupational  history  on, 

118-127 

requirements  for  ideal,  143-145 
score  in  tests  on,  132-135,   155 
statement  of  preference,  on  136 
statement   on   loyalty   on,    139 
tabbing  ofi>   159-161 
tallying  of,  161 
use  of,  by  company  commanders, 

161-162 

use  of,  in  coast  artillery,  177 
use  of,  in  local  requisitions,  284 

Sources  of  Army  personnel  system 
applied  psychology,  41-43 
employment   management,   40-41 
traditional  army  practice,  39 

Spalding,  Maj.  Geo.  R.,  48 

Specialists,  occupational   (See  occu- 
pational specialists) 

Special     tests,    soldier's    score    In, 
132-135 

Spengler,  Maj.  J.  H.,  634 

Staff  corps 

cooperation  with,  404 
competition  between,  223 
needs  of,  investigated,  493 
requisitions  by,  78 

Staff  corps  camps,  personnel   work 
In,  268-273 

Staff    corps   personnel    work,    plan- 
ning group  on,  106 

Statistical    adjutant,    276,    277 

Statistical     summary     of     occupa- 
tional needs,  202-216 


712 


HISTORY  OF  PERSONNEL 


Statistical  work,  216-252 
Stebbins,  Maj.  F.  F.,  51 
Stocksdale,  Mr.  T.  B.,  354 
Stratton,  Capt.  G.  M.,  56,  617,  618 
Strength   of  army,   increase  of,   28 
Strength  returns,  589,  590,  638 
Strong,    L,t.-Col.    (Dr.)    E.    K.,    Jr., 

57,  71,  75,  78,  82,  86,  101,  105, 

106,    109,    171,   254,    471,    474, 

486,  601,  635. 
Strutz,  Capt.  J.  C.,   72 
Students'     Army     Training     Corps 

(SATC) 

authorization  of  536 
officer  material  selection  in,  537, 

538 

personnel  work  in,  106 
procedure  for  induction  into,  538, 

539 

program  of,  537 
record  card  of,  149 
Summary    of    personnel    principles, 

26 

Supervisors,  personnel  (See  person- 
nel supervisors) 
Supply  and  demand,  study  of,  108, 

109,  202-216 
Supply  of  men,  recording  of,  401- 

403 
Supply  section,  central  distributing 

office,  398 
Surgeon  General's  Office   (Also  see 

Medical   Department),   11,   79 
Swan,  Lt.-Col.  J.  J.,  78,  83,  92,  101, 

106,    171,    173,    354,   355,   513, 

515 
Symbols,  occupational,  126,  127 


Tabbing  qualification  cards,  159- 
161- 

Tait.  Capt,  G.  8.,  74 

Tallying  qualification  cards,   161 

Tanks  corps,  personnel  specifica- 
tions of,  190 

Terman,  Maj.  L.  M.,  45,  57,  59,  600, 
602 

Thompson,  Rev.   Alexander,  109 

Thorndike,  Dr.  E.  L.,  43,  46,  54, 
57,  58,  105,  106,  359,  538,  539, 
6OO.  604.  628.  631 

Thorndike  rating  plan,  537-539 


Thorndike  test  of  mental  alertness, 

614-617 

Thorne,   Mr.  Robert,   634 
Thurstone,  Dr.  L.  L.,  364,  381,  382 
Tompkins,  Capt.  E.  R.,  48,  49 
Toops,  H.  G.,  381 
Tornquist,  Lt.,  383 
Trade  schools,  80 
Trade  skill,  122,  123 
Trade  specifications,  13,  14,  78,  83, 
106,  173-177,  191,  348,  354-356 
Trade  terminology  78 
Trade  test  building,  362 
Trade  test  division,  347,  349-351 
Trade  test  school,  377,  383 
Trade  tests 

application  of,  in  reconstruction, 

603 
assembly  of  information  on,  350, 

351 

early  development  of,  78 
first,   351-354 
first     attempt     at     standardized, 

358-360 
first  experiments  in  standardized, 

361-362 
first    plans    for    installation    of, 

371-374 

force  for  operation  of,  261-262 
general  nature  of,  11,  134,  135 
installation  of,  107,  374-380 
list  of,  384-386 
operation   of,   155 
part  of,   in  occupational   classifi- 
cation. u47 
preparation  of,  106 
procedure    in    making    standard- 
ized, 366 

production  of,  380-386 
recording     of,     on     qualification 

card,  134,  135 
revised  method  of  preparation  of 

standardized,  365-370 
sources  of  information  for,  348, 

349 

standardization  of,  92,  363 
study  of  British,  382 
summary  of,  386 
testing  of  standardized,  363 
training  officers  for,  377,  383 
two    conceptions   of   standarized, 
357 


INDEX 


713 


Training  personnel   (adjutants)   of- 
ficers (See  personnel  school) 
Training  sub-section,  CCP,  109,  111 
Transfer  of  CCP,  99,  100,  110 
Transfer  list,  290 
Transfer  of  personnel 

avoidance   of   unnecessary,   22-24 
from    national    army   camps,    88, 

89,  309-311 

paper-work  Involved  in,  266,  267 
railroad  men  to  Engineer's  corps, 

288 
use  of  officers'  qualification  cards 

in,  556 

Transfer  report,  289 
Troland,   Dr.  L.  T.,  617 
Tuck  School,  40 

Turner,  Mr.  A.  J.,  66,  72,  102,  107, 
487 

U 

Unfit  officers,  removal  of,  556,  557 

Upton  plan,  253 

Use  of  personnel,  21,  22 

V 

Vanderblue,  1st  Lt.  H.  B.,  486 
Van  Horn,  Maj.,   58 
Van  Moss,  Lt.  D.    (USMC),  658 
Vocational        Education,        federal 

board  for,  128 
Voluntary   enlistment,    30 

W 

Walsh,    Lt.-Col.    (Maj.)    J.    O.,    69 

War  Department 

Circular  No.  73,  575 
General    Orders   No.    15,    529 
General  Orders  No.  42,  245,  300, 

585 

General  Orders  No.  45,  338,  513 
General  Orders  No.  46,  551,  553, 

591 

General  Orders  No.  60,  259 
General  Orders  No.  78,  557 
General  Orders  No.  80,  275 
General  Orders  No.  85,  574,  578 
General  Orders  No.  86,  262 
telephone  directory,  494 

War  Industries  Board,   666 

War  Labor  Policies  Board,  666 

War  Service  Exchange 

absorption     by,     of     intelligence 
bureau,  498 


centralized     personnel     organiza- 
tion projected  by,  97,  499-503 
cooperation     of,     with     military 
training      camps      association, 
498 

correspondence  work  of,   495 
discontinuance   of,    112 
establishment  of,  80,  586,  587 
expansion   of   activities   by,   497- 

499 

information    blank   used   by,   493 
methods  of,  495-499 
operation  of,  109 
organization  of,  491 
personal   interviews  by,  497 
purpose  of,  491-492,   511 
sources  of  supply  used  by,  495 
telephone  directory  by,  494 
transfer    of,    to    General     Staff, 

510,  511 

Watson,    Mf.    Hathaway,    108,    402 
Watson,  Maj.    (Dr.)    J.   B.,  57,  58, 

351 

Watson,  2nd  Lt.  J.  E.  (USMC),  661 
Watson,    Mr.    Max,    78,    106,    156, 

349,  364,  381 
Weeks,  Harvey  E.,  109 
Weislger  Mr.   Kendall,   66,   71,   75, 
81,  82,  85,  102,  108,  181,  471, 
474,   486,   601,   636 
Wellman,  Mr.  H.  L.,  102,  105,  108 
Wells,  Capt.  E.  L.,  620 
Wells,  Mr.  G.  C.,  109 
Weston,  Maj.  E.  H.,  471,  474 
Whipple,  Mr.  C.  J.,  66,  72,  102 
Whipple,  Dr.  G.  M.,  42,  43 
Whitely,  Yeoman  (chief  clerk),  653 
Whiting,  Maj.  (Capt.)  L.  H.,  72,  83 
Wigmore,   Col.    (Maj.,   Lt.-Col.),   J. 

H.,  80,  97,  529,  595 
Wilhelm,  Maj.  G.  F.,  107,  264 
Willard,  Col.  Charles,  375,  376 
Winship,  Lt.-Com.  Emery,  653 
Wood,  Brig. -Gen.  R.  E.,  636 
Woods,  Mr.  Edward  A.,  42 
Woodward,  Maj.  F.  C.,  595 
Woodworth,  Dr.,  54 
Wright,   Mr.   S.   E.,   102,   109 


Yerkes,  Maj.  R.  M.,  43,  54,  57,  600 
Yoakum,  Maj.  C.  S.,  602 


University  of  California 

SOUTHERN  REGIONAL  LIBRARY  FACILITY 

405  Hilgard  Avenue,  Los  Angeles,  CA  90024-1388 

Return  this  material  to  the  library 

from  which  it  was  borrowed. 


_  iium      IIII,M  u  was  uui  luweu. 

NON-RtNBWABLE 


NOV  1  9 1 
/i/<~ 

DUE2WKJFROM 


Jflf 


Form  L9-25m-3,'6HB«>163s4j444 

x,ua  Aiigej.es  iJ4, 


California 


UC  SOUTHERN  REGIONAL  LIBRARY  FACILITY 


A     000  691  005     3 


Uibrarg  of 

Bobrrt  •"•-*«m 


